NATIONAL OPEN UNIVERSITY OF NIGERIA
91, Cadastral Zone, University Village Jabi, Abuja
FACULTY OF MANAGEMENT SCIENCES
PUBLIC SECTOR ACCOUNTING AND FINANCE
ACC418
COURSE GUIDE
Course Developer/ Writer:
Dr Killian Ogiedu (FCA)
Department of Accounting,
University of Benin.
Course Editor:
Prof. B.R. Yusuf,
Department of Accounting,
Lagos State University.
Head of Department
Dr (Mrs) Ofe Inua
Department of Financial Studies
National Open University of Nigeria
Programme Coordinator
Anthony I. Ehiagwina
Department of Financial Studies
National Open University of Nigeria
CONTENT
1
Introduction
Course Aim
Course Objectives
Study Units
Assignments
Tutor Marked Assignment
Final Examination and Grading
Summary
INTRODUCTION
You are holding in your hand the course guide for ACC418 (Public Sector Accounting and
Finance). The purpose of the course guide is to relate to you the basic structure of the course
2
material you are expected to study as a B.Sc. Accounting Student in National Open
University of Nigeria. Like the name ‘course guide’ implies, it is to guide you on what to
expect from the course material and at the end of studying the course material.
COURSE CONTENT
The course content consists of basic accounting practice and finance that relates to public
service.
COURSE AIM
The aim of the course is to educate you on how public sector accounting and finance is
treated following basic accounting concepts and relevant laws and procedures.
COURSE OBJECTIVES
At the end of studying the course material, among other objectives, you should be able to:
1.
Understand the nature of the public sector;
2.
Understand the difference between public sector Organizations and
government business Organizations;
3.
Know the external and internal users of public sector accounting information
and their respective uses of the information;
4.
Appreciate the differences between public sector accounting and private
sector accounting;
5.
Understand the bases of public sector accounting including the cash bases,
the accrual basis, and the commitment bases;
6.
Appreciate the advantages and disadvantages of each of the bases;
7.
Know the accounting principles applicable in the public sector;
8.
Understand the various accounting concepts;
9.
Understand the various accounting conventions and others.
COURSE MATERIAL
The course material package is composed of:
The Course Guide
The study units
Self-Assessment Exercises
Tutor Marked Assignment
References/Further Reading
3
THE STUDY UNITS
The study units are as listed below:
MODULE I
Unit 1:
Overview of public sector accounting and finance in Nigeria.
Unit 2:
Legal and regulatory framework of public sector accounting and
finance in Nigeria.
Unit 3:
Accounting concepts, principles and bases
Unit 4:
National charts of accounts and uniform reporting
Unit 5:
Fund accounting
Unit 6:
Government accounting officers
MODULE II
Unit 1:
Sources of government revenue
Unit 2:
Government expenditure
Unit 3:
Financial control in government
Unit 4
Preparation of vouchers
Unit 5
The cash office
Unit 6:
Bank reconciliation
MODULE III
Unit 1:
Preparation of transcripts
Unit 2:
Treasury final accounts –Cash basis
Unit 3:
Accounting for local government
Unit 4:
Government Budgeting l
Unit 5:
Government Budgeting II
Unit 6:
Auditing in government
Unit 7:
Parastatals and public entities accounting
MODULE IV
Unit 1:
Financial reporting under IPSAS
Unit 2:
IPSAS 1,2,3,4, &5.
Unit 3:
IPSAS W 6,7,8,9, 10, & 11
Unit 4:
IPSAS 12,13,14,15,16, & 17.
4
ASSIGNMENTS
Each unit of the course has a self assessment exercise. You will be expected to attempt them
as this will enable you understand the content of the unit.
TUTOR MARKED ASSIGNMENT
The Tutor Marked Assignments (TMAs) at the end of each unit are designed to test your
understanding and application of the concepts learned. Besides the preparatory TMAs in the
course material to test what has been learnt, it is important that you know that at the end of
the course, you must have done your examinable TMAs as they fall due, which are marked
electronically. They make up to 30 percent of the total score for the course.
SUMMARY
It is important you know that this course material was designed by the author with
adaptations from various works as duly referenced. This provides you the opportunity of
obtaining a BSc. degree in Accounting and preparation for your professional examinations.
Therefore, it is very important that you commit adequate effort to the study of the course
material for maximum benefit. Good luck.
5
PUBLIC SECTOR ACCOUNTING AND
FINANCE
ACC418
MAIN CONTENT
Course Developer/ Writer:
Dr Killian Ogiedu, (FCA)
Department of Accounting,
University of Benin.
Course Editor:
Prof. B. R. Yusuf,
Department of Accounting,
Lagos State University.
Head of Department
Dr (Mrs) Ofe Inua
Department of Financial Studies
National Open University of Nigeria
Programme Coordinator
Anthony I. Ehiagwina
Department of Financial Studies
National Open University of Nigeria
6
TABLE OF CONTENTS
MODULE I
Unit 1:
Overview of public sector accounting and finance in Nigeria.
Unit 2:
Legal and regulatory framework of public sector accounting and
finance in Nigeria.
Unit 3:
Accounting concepts, principles and bases
Unit 4:
National charts of accounts and uniform reporting
Unit 5:
Fund accounting
Unit 6:
Government accounting officers
MODULE II
Unit 1:
Sources of government revenue
Unit 2:
Government expenditure
Unit 3:
Financial control in government
Unit 4
Preparation of vouchers
Unit 5
The cash office
Unit 6:
Bank reconciliation
MODULE III
Unit 1:
Preparation of transcripts
Unit 2:
Treasury final accounts –Cash basis
Unit 3:
Accounting for local government
Unit 4:
Government Budgeting l
Unit 5:
Government Budgeting II
Unit 6:
Auditing in government
Unit 7:
Parastatals and public entities accounting
MODULE IV
Unit 1:
Financial reporting under IPSAS
Unit 2:
IPSAS 1,2,3,4, &5.
Unit 3:
IPSAS W 6,7,8,9, 10, & 11
Unit 4:
IPSAS 12,13,14,15,16, & 17.
7
MODULE I
Unit 1:
Overview of public sector accounting and finance in Nigeria.
Unit 2:
Legal and regulatory framework of public sector accounting and finance in
Nigeria.
Unit 3:
Accounting concepts, principles and bases
Unit 4:
National charts of accounts and uniform reporting
Unit 5:
Fund accounting
Unit 6:
Government accounting officers
UNIT 1:
OVERVIEW OF PUBLIC SECTOR ACCOUNTING AND FINANCE
CONTENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Introduction to public sector accounting
3.2
The nature of the public sector
3.2.1
Public Sector Organizations
3.2.2
Government Business Enterprises
3.3
Objectives of public sector accounting
3.4
Users of government accounting information
3.5
3.4.1
Internal Users
3.4.2
External Users and Uses of Interest
Differences between public sector accounting and private sector accounting
4.0
Conclusion
5.0
Summary
6.0
Tutor marked assignment
7.0
References/Further reading
1.0
INTRODUCTION
In this unit, the student will learn of the nature of the public sector, the difference
between public sector Organizations and government business Organizations and the
external and internal users of public sector accounting information and their respective
uses of the information. You will also learn the differences between public sector
accounting and private sector accounting.
8
2.0
OBJECTIVES
At the end of the unit, the student should be able to:
10. Understand the nature of the public sector.
11. Understand the difference between public sector Organizations and
government business Organizations
12. Know the external and internal users of public sector accounting information
and their respective uses of the information.
13. Appreciate the differences between public sector accounting and private
sector accounting.
MAIN CONTENT
3.1
INTRODUCTION TO PUBLIC SECTOR ACCOUNTING
This course is on public sector accounting. From the title of the course, two concepts come out
significantly, that is, “public sector” and “accounting”. Simply stated, public sector refers to all
Organizations that are neither owned nor operated by private individuals or Organizations. In other
words, public sector consist of all the Organizations that are owned, , operated and financed by the
Government on behalf of the people. In Nigeria, the public sector refers to the federal government,
the 36 states, the 774 local government councils, all government corporations, commissions and
institutions.
On the other hand, accounting is the process of identifying, measuring and communicating the
economic information of an organization to its users who need the information for decision
making. It identifies transactions and events of a specific entity. When the two concepts are
combined, we can see that public sector accounting is an aspect of accounting. It covers accounting
in government ministries and extra-ministerial departments (either at federal or state levels), local
governments, government parastatals, government committees, task forces and commissions
amongst others.
Public sector accounting refers to all the financial documents and records of public institutions
that relate to the collection of tax payers money, and the analysis, control of expenditure,
administration of trust funds, management of government stores and all the financial
responsibilities and duties of the relevant organs. It is a system of accountability through which the
established institutions of the public render stewardship on the revenue of the Nation and how it
has been disbursed. It includes the process of recording, analysing, classifying, summarising,
communicating and interpreting financial information about the public sector in aggregate and in
9
details, recording all transactions involving the receipt, transfer and disposition of public funds and
property.
Thus the processes of public sector accounting are:
(a)
Recording: This involves the process of documenting the financial transactions and events
in the relevant books of accounts such as the cash book, the ledger and the vote book.
(b)
Analysing: This involves the process of segregating transactions based on predetermined
criteria and posting them to appropriate heads and sub-heads.
(c)
Classifying: This has to do with the grouping of the transactions into revenue and expense
descriptions and bringing them under major classes as “Revenue Head and Sub-heads”,
with their relevant code numbers of accounts.
(d)
Summarising: This concerns the bringing together of all the classes of accounts and
preparing them into reports periodically as are statutorily or organizationally required.
(e)
Communicating: This is about making available financial reports on all the government
financial activities from the necessary accounting summaries to various interested parties.
The style of communication adopted should be un- ambiguous,
lucid
and
devoid
of
jargons as much as possible.
(f)
Interpreting: This ends the process by giving explanations on what has been reported in the
various financial statements and reports, as regards the overall operations and performance
of the relevant government Organization(s). This is to enable the necessary parties and
users to take relevant decisions based on their assessments of the reports.
Self- Assessment Exercise.
1. What is Public Sector Accounting?
3.2
THE NATURE OF THE PUBLIC SECTOR
The public sector is generally used to refer to the federal, states and local governments and their
ministries, parastatals and extra ministerial departments. The term also covers other government
(public sector) Organizations and 66government business entities (GBEs). Public sector
accounting and Government accounting are often used interchangeably. While they may be similar
in many respects, they are not exactly the same. The difference lies mainly in the scope.
Government accounting covers only accounting in ministries, extra-ministerial departments of
government and local government the other hand, public sector
accounting covers both
government accounting and accounting in other public sector Organizations. It, however, excludes
accounting in government business entities. We shall elaborate on the concepts of public sector
Organizations and government business entities to illustrate their differences.
10
3.2.1 Public Sector Organizations
The public sector organizations are Organizations set up by the respective tiers of government to
perform specific functions outside the government ministries and extra-ministerial departments.
Omolehinwa and Naiyeju (2015) identified two features of public sector Organizations:
i.
They do no operate primarily to make profit.
ii. They do not distribute their income or assets to the benefit of their members or officers of
the organizations.
According to Omolehinwa and Naiyeju, even when such Organizations are dissolved, the proceeds
realised is not given to any individual, but rather the proceeds goes back to the government. There
are very many types of public sector organizations. Omolehinwa and Naiyeju classified them into
two: Type A and Type B. According to them, Type A consists of those the public sector
organizations whose financial resources are obtained principally from the sale of goods and
services. On the other hand, Type B arethose financed from sources other than sale of goods and
services. Such organizations are financed primarily through
government revenue. Examples of
Type B public sector organizations in Nigeria are the Nigerian Armed Forces, the Nigerian Police
Force, public universities among others. These public sector organizations are covered by public
sector accounting.
3.2.2 Government Business Enterprises
Government business enterprises are public sector Organizations whose operations are commercial
in nature. During the privatisation and commercialisation exercise in Nigeria, some statutory
authorities and Organizations of governments were re-constituted during as profit-making
Organizations. They became known as known as government business enterprises (GBEs). They
are provided with considerable management autonomy in which their Chief executive officer and
board of directors could set strategic directions and make resource management choices.
Nevertheless, they remained wholly-owned by government, and the relevant government minister,
in effect, retained the power of their sole shareholder. While acting as fully competitive profitmaking enterprises, they are also made strongly accountable to the government minister, the
parliament and the public. GBEs are, thus, controlled under a structure that places high
expectations on their ability to succeed in a competitive market by returning regular dividends
from profits to government, and at the same time meeting high demands on their accountability to
the minister, parliament and the public.
Government Business Enterprises (GBEs) include trading enterprises such as utilities and financial
enterprises such as financial institutions. For accounting purposes, GBEs 1are treated like
11
organizations in the private sector since they generally operate to make profit. The International
Public Sector Accounting Standard (IPSAS) 1 specified the characteristics for delineating a GBE:
i.
The entity must have the power to contract in its own name;
ii.
It must the financial and operational authority to carry on a business;
iii.
It sells goods and services, in the normal course of its business, to other entities at a profit or
full cost recovery.
iv.
It does not rely on continuing government funding to be a going concern (other than
purchases of outputs at arm's length); and
v.
3.3
It is controlled by a public sector entity.
OBJECTIVES OF PUBLIC SECTOR ACCOUNTING
The objectives of Government accounting include the following:
(1)
To fulfil legal requirement. The law requires that government accounts are prepared and
audited annually. Therefore, the objective of public sector accounting is to ascertain the
legitimacy of transactions and their compliance with rules and
(2)
regulations.
To provide evidence of stewardship. The government utilizes societal resources on behalf
of the people. Government has to give account of how these resources were used.
(3)
To enable Government to plan future activities and programmes of the Nation. In other
words, public sector accounting assists the government in planning and control.
(4)
To provide a process of controlling the use of the financial and other resources.
(5)
To provide the means by which actual performance may be compared with the target set.
(6)
To evaluate the economy, efficiency and effectiveness with which governance is carried
out.
(7)
To provide an objective and timely reporting.
(8)
To highlight the various sources of income to the government and the respective
performance of the sources.
(9)
To ensure that costs are commensurate with benefits.
(10)
To provide details of government commitments in both the short and long terms.
(11)
Identifying the sources of funds for capital projects.
Self-Assessment Exercise
1. List ten (10) objectives of Public sector accounting.
12
3.4
USERS OF GOVERNMENT ACCOUNTING INFORMATION
There are two broad groups of users of public sector Accounting information. These are
internal and External users whose peculiarities and areas of interests are briefly discussed,
as follows:
3.4.1 Internal Users:
This group of users includes:
i.
The Executive: This is the executive arm of government. This includes the President,
governors, and local government chairmen. They are interested in ensuring probity and
accountability through proper accounting book keeping and performance control which
are achieved through accounting information.
ii.
Federal Ministers, state commissioners and local government councillors.
iii.
Top administrators of government ministries and extra ministerial departments. This
includes Permanent Secretaries and Directors of various Ministries.
iv.
The General Managers and chief executives of public sector Organizations.
v.
The Labour Union in the public service which will press for improved conditions of
employment and security of tenure for their members.
3.4.2 External Users and uses of Interest.
External Users include:
(i)
The Legislature:
They are primary users of government financial reports. They look to financial reports to
provide information to help them assess the government stewardship of resources,
compliance with legislation and other authorities, state of finance and performance.
(ii)
The Public:
The members of the public are the receivers of government services. They are also the
beneficial owners of the public money and property. Members of the public are tax taxpayer
and recipients of goods or services provided by the government. They seek information on
how well government had managed the national financial affairs and resources, and on the
overall economic impact of government activities.
(iii) Investors and Creditors: Investors in government securities and enterprise and other creditors
provide financial resources to governments. It interests governments in providing investors and
creditors with information, which are useful in evaluating the efficiency and effectiveness of
government agencies. Sometimes, investors and creditors seek specific information in addition
to the general purpose of financial reporting.
13
(iv) Other
Governments, International Agencies and other resource providers. Such institutions
include IMF, ADB, OAU, ECOWAS. Similar to investors and creditors, other governments,
international agencies and resource providers are interested in the state of finances of a
government or unit. In addition, they are interested in plans and priorities of such units of
governments.
(v)
Analysts
Economic and financial analysts, including the financial media, review, analyse and
disseminate information to other users, such as legislators and the public. They use the
information provided to analyze and evaluate financial and economic issues.
(vi)
Trade unions: These are unions for employees who do not work in public sector
organizations. They require information to enable them know the performance of the
government and the economy. One way they could use such information is in minimum
wage negotiations. Labour unions in Nigeria have in recent times use government
information in negotiating prices of essential commodities like petroleum products.
3.5
DIFFERENCES
PRIVATE
BETWEEN
PUBLIC
SECTOR
ACCOUNTING
AND
SECTOR ACCOUNTING
1. Before any business in the private sector can operate in Nigeria, it is required by law to
register with the Corporate Affairs Commission, Abuja. The government corporations in
Nigeria are not required to register with Corporate Affairs Commission. They are created by
Acts of Parliament and consequently, no public funds can be spent on any government
corporation that has not been created by law.
2. In the public sector, revenue is derived from the public in form of taxation, fines, fees etc.,
whereas private sector businesses derived their revenues from sales of goods and services.
3. The dominant purpose of a profit oriented organization is to earn profit. The success of such
an organization can be measured to some extent by the amount of profit earned in relation to
the assets of the organization. An investor who is interested in such an organization can look
at its financial statements for the relevant information on the extent of fulfillment of the
profit goal of the company. On the other hand, the dominant purpose of a non-profit public
sector organization is to render socially desirable specific service to the society at a
reasonable cost.
4. While profit is a good measure of performance of a profit oriented organization, this cannot
be said of a non-profit organization, even in the case of Type A Organizations that raise their
financial resources predominantly through the sale of goods and services. A high excess of
14
revenue over expenses in a. non-profit organization, is not enough evidence that the
organization is doing well because it is less subjected to market forces than a profit oriented
organization in a competitive industry. This means that while a profit oriented organization is
expected to produce goods at the selling rice that are in line with what the market is willing
to pay or go out of business, a non-profit organization has no such danger signal because of
the unique circumstances in which the services are priced.
5. Government Accounting mostly uses the budgetary approach, recording and classifying
items of revenue and expenditure under various heads and sub-heads. Although Private
Sector Accounting equally does budgeting and budgetary control, revenue and expenditure
matters are, recorded by their natural description, such as stationary and discount allowed.
6. Government Accounting operates predominantly “fund accounting‟ method in collating its
data and information. Private Sector Accounting uses the proprietary (or ownership) style
which discloses the nature and sources of the enterprise’s finance or capital structure, such as
ordinary share capital or capital structure, such as, ordinary share capital and preference
share capital.
7. The legal basis of Government Accounting is the Constitution and Acts of Parliament, unlike
Private Sector Accounting which draws its existence and strength from Companies Acts.
8. In government accounting, current assets such as stocks and debtors are not shown in their
balance sheet, as debtors are not reckoned with until money is received. These must be
shown in commercial accounting system together with analysis of debtors.
9. In public sector accounting, financial transactions are recorded on cash basis while in
commercial organizations it is on accrual basis. However, with the introduction of the
accrual basis International Public Sector Accounting Standards (IPSAS) into the
Nigerian, this distinction may cease to exist.
10. In public sector accounting, tangible fixed assets such as land and building, plant,
machines are not shown in their balance sheet whereas in commercial accounting
these must be shown together with the aggregate depreciation to date.
11. In Government, there is no annual general meeting of stakeholders, unlike the
private
companies that are required by law to hold such meetings. Instead, whenever there is need
for such communication in the public sector, the government will organise public or press
briefings to address the issues at stake.
4.0
SUMMARY
In this chapter, you were introduced to government accounting as a process which involved the
documentation of financial records. The process involves the recording, analysing, classifying
15
and summarising, communicating and interpreting government’s financial transactions.
Moreover, the objectives of government accounting were outlined. The differences between
Public and Private Sector Accounting were discussed. External and internal users and interest
areas of government accounting information were highlighted.
5.0
CONCLUSION
This unit has introduced you to public sector accounting operations which are different from
those of private sector Organizations. While private sector Organizations emphasize wealth
maximisation, public sector Organizations are interested in improving peoples welfare. The
following units will explain further about the operations of public sector Organizations.
6.0
TUTOR MARKED ASSIGNMENT
1. Distinguish between public sector accounting and accounting in the private sector.
2. Identify the internal users of public sector accounting information and their information
needs.
7.0
REFERENCES/FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition 3, Lagos:
Corporate Publishers Venture.
Emeni, F. K., Ogiedu, K.O., Mgbame, C.O., &Erhagbhe, E. (2008) Public sector accounting and
finance, Benin City: Mindex Publishing Company Limited
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublisher
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
16
UNIT 2 LEGAL AND REGULATORY FRAMEWORK OF PUBLIC SECTOR
ACCOUNTING
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
The legal and regulatory framework of public sector accounting
3.2
The 1999 Constitution
3.3
Finance (Control and Management) Act of 1958, CAP. 144, 1990
3.4
Audit Ordinance (or Act) of 1956.
3.5
Appropriation Acts
3.6
Treasury/finance circulars and circular letters
3.7
Fiscal Responsibility act, 2007
3.8
Model Financial Memoranda for Local Government
3.9
Accrual Accounting Manual for Federal, States and Local Governments
3.10
Financial Regulations
3.11
Accounting Manuals
3.11.1 Advantages of Accounting Manuals
3.11.2 Disadvantages of Accounting Manuals
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0
INTRODUCTION
In this unit you will learn about the Legal and regulatory framework of public sector accounting.
You will also learn about the provisions of the 1999 Constitution affecting public sector
accounting in Nigeria, Finance (Control and Management), Act 1958, Fiscal Responsibility Act
(FRA) 2007, the Public Procurement Act (PPA) 2007, the Freedom of Information Act (FOI)
2011, and the Financial Regulations (2009). You will further learn about the provisions relating to
public sector accounting contained in the Nigerian Extractive Industries Transparency Initiative
Act 2007, the Federal Treasury Accounting Manual, treasury Circulars, and the Procurement
Procedures Manual issued by the Bureau of Public Procurement (BPP).
17
MAIN CONTENT
3.1
THE LEGAL AND REGULATORY FRAMEWORK OF PUBLIC SECTOR
ACCOUNTING
The legal and regulatory framework for public sector accounting and financial management
consists of the following among others:
(i)
The Nigerian Constitution of 1999
(ii)
Finance (Control and Management), Act 1958
(iii)
Fiscal Responsibility Act (FRA) 2007
(iv)
Public Procurement Act (PPA) 2007
(v)
Freedom of Information Act (FOI) 2011
(vi)
The Financial Regulations (2009).
(vii)
The Nigerian Extractive Industries Transparency Initiative Act 2007.
(viii)
The Federal Treasury Accounting Manual.
(ix)
Treasury Circulars
(x)
The Procurement Procedures Manual: Issued by the Bureau of Public Procurement
(BPP).
3.2
THE 1999 CONSTITUTION
The constitution is the fundamental law from which all other laws in the country are derived.
Thus it is the most important regulatory framework of public sector accounting. It provides for the
establishment of the consolidated revenue fund and the Federation Account among others. It
prescribes for how money can be withdrawn from the consolidated revenue fund. It is also
concerned with auditing of government departments and parastatals by indicating the
appointment, duties and removal of the Auditor-General of the Federation. The most relevant
sections of the 1999 Constitution for public sector accounting are:
Section 80(1) to (4): The establishment and operation of the Consolidated Revenue Section 81 (1)
to (4): This provision treats the procedure for authorisation of expenditure from the Consolidated
Revenue Fund.
Section 82. This section makes provision tor the running of government when the approval of
the budget is delayed. It authorises the President to withdraw money from the Consolidated
Revenue Fund of the Federation for six (6) months pending the approval of the budget.
Section 83. This provides for the creation of the Contingencies Fund.
18
Section 84. The section provides for the remuneration of the President and other statutory officers.
Section 85. The audit of public accounts is discussed.
Sections 86 & 87: The sections treat the appointment and tenure of the Auditor-General.
Sections 88 & 89: The sections give power to the National Assembly to conduct investigations and
procure all evidence needed.
Section 149: Ministers are constitutionally required to declare their assets and liabilities and oaths
of allegiance.
Section 162: This section creates the Federation Account into which all revenue collected by the
Government of the Federation (with some exceptions) is paid.
Section 163: This deals with the allocation of other revenue.
Section 164: Federal grants-in-aid of State revenue are treated herein.
Section 313: The system of revenue allocation is dealt with under this section.
3.3 FINANCE (CONTROL AND MANAGEMENT) ACT OF 1958, CAP. 144, 1990
This is the major law on which the foundation of government accounting rests. It is the basic law
which governs the procedure and control of all financial operations of government. The Act
regulates the management and operation of government funds. It prescribes the books of accounts
to be operated and the procedures to be adopted in the preparation of accounts and financial
statements.
The Act consists of six parts:
PART I: Provides for the general supervision and legislative control of public monies. It
authorises the Minister of finance to supervise the expenditure and finances of the Federation as to
ensure that a full account is made to the Legislature. It also entrusts to the Minister the
management of the Consolidated Revenue Fund and the supervision and control of all matters
relating to the financial affairs of the Federation which are not by law assigned to any other
Minister.
PART II: Part 11 provides for the management of the consolidated revenue fund.
It gives the
Minister the power to authorise by warrant the issue from the Consolidated Revenue Fund of
moneys necessary to meet statutory expenditure or to meet the cost of any purpose for which any
19
sum has been appropriated in accordance with any Act. In respect of the issue of moneys other
than statutory expenditure, it provides that no authority shall be given in excess of the sum
appropriated for the purpose concerned. This part also provides for the treatment of erroneous
receipts and losses,
PART III: This part deals with government investments. It provides for the authorization and
management of government investments. It provides that the Consolidated Revenue Fund, and any
other public fund of the Federation may in part consist of deposits with a bank, or with the Joint
Consolidated Fund, either at call or subject to notice not exceeding six months, or of any
investments in which a trustee in Nigeria may lawfully invest trust funds. It further provides that
the disposition of moneys of the Consolidated Revenue Fund or of such other public fund for any
such purpose shall need no legislative authority other than that contained in this section and maybe
made by the Accountant-General or the State Agents for Overseas Governments and
Administration in accordance with specific instructions issued by the Minister.
PART IV: This part provides for the legislative authorisation of expenditure This section provides
that in accordance with the provisions of the Constitution, the Minister shall cause to be prepared
in each financial year estimates of the revenues and expenditure of the Federation for the next
following financial year, which shall be presented to the President for approval and when approved
by him shall be laid before each House of the National Assembly at a meeting commencing before
the 1st day of January of the financial year to which they relate.
PART V: This part deals with other public funds of the Federation. It specifies the specification
of certain public funds allocated by law and the carrying forward of annual balance. It also
specifies that interest and investment fluctuations are to accrue to the Consolidated Revenue Fund
in certain cases. Fluctuation in value of investments and the rules for management of funds are also
treated in this part.
PART VI: This part deals with miscellaneous issues such as the treatment of all funds of
government. It discusses the preparation of the annual accounts of all funds and the transfer from
general revenue balance to the consolidated revenue fund on the April 1, 1958.
3.4
AUDIT ORDINANCE (OR ACT) OF 1956.
The Act deals generally with the audit of government accounts. It Act covers the appointment,
tenure, remuneration and termination of the Auditor-General for the Federation. (known in the Act
as the Director of Federal Audit). It caters for the audit of public accounts, including parastatals.
20
The Act provides that the Director of Federal Audit shall on behalf of the House of
Representatives inquiries into and audit the accounts of all accounting officers and of all persons
entrusted with the collection, receipt, custody, issue or payment of federal public moneys, or with
receipt, custody, issue, sale, transfer or delivery of any stamps, securities, stores or other property
of the government of the Federation ( section 7(1) ). The Act also provides that the Director of
Federal Audit shall satisfy himself:
(a)
that all reasonable precautions have been taken to safeguard the collection of Federal
Public moneys and that the law relating thereto has been duly observed
and that all directions or
instructions relating thereto have been obeyed; and
(b)
that all money appropriated or otherwise disbursed has been expended and applied for the
purpose or purposes for which the grants made by the legislature
to provide and that the expenditure conforms to
(c)
of the Federation were intended
the authority which governs it, and
that adequate regulations exist for the guidance of storekeepers and store accountants and
that they have been duly observed (Audit Act, 1956: section 7(2) (a-c) ).
Section 11 of the Act provides that If at any time it appears to the Director of Federal Audit that
any irregularities have occurred in the receipt, custody or expenditure of federal public moneys or
in the receipt, custody, issue, sale, transfer or delivery of any stamps, securities, stores or other
property of the Government of the Federation, or in the accounting for the same, he shall
immediately bring the matter to the notice of the Governor-General or of the Minister as he may
consider appropriate.
Section 14(2) provides that within eight months of the close of each financial year or within such
longer period as the House of Representatives may by resolution appoint, the Director of Federal
Audit shall transmit to the Minister, copies of the accounts signed and presented by the
Accountant- General of the Federation in pursuance of the provisions of section 13 together with a
certificate of audit and a report upon his examination and audit of all accounts relating to the
public moneys, stamps, securities, stores and other property of the Government of the Federation.
The Act provides safe guards and lee ways to the Director of Audit in carrying out his job. It
provides that in the exercise of his duties under the ordinance, the Director of Federal Audit may:–
(a)
call upon any Federal or Regional officer to furnish forthwith, any explanations
and
information which he may require in order to enable him to discharge his duties;
(b)
authorise any Federal or Regional officer on his behalf to conduct any inquiry,
examination, or audit and such officer shall report, thereon to the Director of Federal Audit.,
(c)
without payment of any fee, cause search to be made in and extracts to be taken from any
book, document or record in any public office,
21
(d)
examine upon oath, declaration or affirmation (which oath, declaration or affirmation the
Director of Federal Audit is hereby empowered to administer) all persons whom he may think fit
to examine respecting the receipt or expenditure of money or the receipt or issue of any store
affected by the provisions of this ordinance and respecting all other matters and things necessary
for the due performance and exercise of the duties and powers vested in him (section 12(1)(d)
(e)
lay before the Attorney General of the Federation; a case in writing as to question regarding
the interpretation of any ordinance or regulation concerning the powers of the Director of Federal
Audit or the discharge of his duties; and the Attorney-General of the Federation shall give a
written opinion on such case ( section 12(1)(e) ).
The Audit Act is indeed a colonial law being enacted before Nigeria’s independence in 1960.
Since its enactment, various constitutions (1963, 1979, 1989, and 1999) have recognised and
codified essential provisions of the Act. However, many criticisms have been levied against it to
the effect that that its provisions are not adequate to fight corruption and ensure probity,
transparency and accountability in the public service. According to Ogunyemi (2014) the
deficiencies of the Audit Act lie in two major areas. According to him, the first is in the
construction or drafting of the Act itself. In this regard are the non-provision for a sanction on
corruption or misuse of public funds, anachronistic and obsolete provisions and the lack of full
autonomy for the office of the Auditor-General. The second lies in the limitation imposed on the
Act itself by the extant provision of the 1999 constitution which forbids the Auditor-General to
investigate or report on certain accounts of some government agencies.
Another flaw which has been pointed out is that the power to act on the findings of the Auditor
General is vested in the arms of government that are the major subject of the Auditor’s
investigation, namely the legislature and the executive. The naked implication of this is that the
person indicted who is empowered to act on his indictment will simply refuse to act. According to
Ogunyemi (2014), it contradicts the sacred judicial principle of equitable justice and fair dealings
summarised in the legal maxim of nemo judex in causa sua, a major requirement of the rule of law.
The observed deficiencies in the Act have led to the call its repeal or revision. In this connection,
A Bill for an Act to Repeal the Audit Act of 1956 and Re-Enact the Audit Act of 2014 has been
presented to the National Assembly. While the House of Representatives has passed the Bill, the
Senate is yet to do the same. The Bill when passed into law is expected to strengthen the powers
of the Office of the Auditor-General for the Federation, Establish the Audit Service Commission
and for other matters related thereto. The passage of the Bill will not only make the Office to be
financially independent but will also grant administrative autonomy to the Office of the Auditor-
22
General for the Federation. They will now have the power to recruit, promote and discipline their
staff.
3.5.
APPROPRIATION ACTS Money Bills when passed into laws become Appropriation Acts.
They regulate financial matters, including the payment or withdrawal from the
Consolidated Revenue Fund. Appropriation Acts are passed yearly, for the release of public
money so as to render services in the years to which they relate. Appropriation Acts may
direct a change in the way of operating any fund, apart from the Contingencies Fund and
the Consolidated Revenue Fund.
3.6.
TREASURY/FINANCE
CIRCULARS
AND
CIRCULAR
LETTERS
These
are
administrative instruments which are issued for the purpose of guiding day-to-day routine
operations of the departments of government. They are used in amending existing
provisions of public service rules and Financial Regulations.
3.7.
FISCAL RESPONSIBILITY ACT, 2007
The Fiscal Responsibility Act 2007 is an act to provide for prudent management of the
Nation’s Resources, ensure Long- Term Macro-Economic stability of the National
Economy, secure greater accountability and transparency in Fiscal operations within the
Medium Term Fiscal Policy Framework, and the establishment if the Fiscal Responsibility
Commission to ensure the promotion and enforcement of the Nation’s Economic
objectives; and for related matters. The 2007 Act has been amended by the Fiscal
Responsibility Act 2011. The Act is divided into
Parts. Part established the Fiscal
Responsibility Commission which is charged with the responsibility of implementing the
provisions of the Act. The commission is vested with the following powers:
1.
Power to compel any person or government institution to disclose information relating to
public revenues and expenditure; and
2.
Power to cause an investigation into whether any person has violated any provisions
of the Act.
3.
If the Commission is satisfied that such a person has committed any punishable offence
under this Act violated any provisions of this Act, the Commission shall forward a report of
the investigation to the Attorney- General of the Federation for possible prosecution.
The functions of the commission include to:
(a)
Monitor and enforce the provisions of this Act and by so doing, promote the economic
objectives contained in section 16 of the Constitution;
23
(b)
Disseminate such standard practices including international good practice that will result
in greater efficiency in the allocation and management of public expenditure, revenue
collection, debt control and transparency in fiscal matters;
(c)
Undertake fiscal and financial studies, analysis and diagnosis and disseminate the result to
the general public;
(d)
Make rules for carrying out its functions under the Act; and
(e)
Perform any other function consistent with the promotion of the objectives of the Act.
PART II – This part sets out the framework for the preparation of the Medium Term Expenditure
Framework by the Federal Government. It provides inter alia that the Federal Government after
consultation with the states shall –
(a)
Not later than six months from the commencement of this Act, cause to be prepared and laid
before the National Assembly, for their consideration a Medium-Term Expenditure
Framework for the next three financial years; and
(b)
Thereafter, not later than four months before commencement of the next financial year, cause
to be prepared a medium-term expenditure Framework for the next three financial years.
The framework so laid shall be considered for approval with such modifications, if any, as the
National Assembly finds appropriate by a resolution of each House of the National Assembly.
PART III – Sets out the framework for the preparation of the annual budget. According to the Act,
the Annual Budget are to be derived from the Medium Term Expenditure Framework. It provides
among other things that the Medium term Expenditure Framework shall:
(1)
Be the basis for the preparation of the estimates of revenue and expenditure required to be
prepared and laid before the National Assembly under section 81 (1) of Constitution.
(2)
The sectoral and compositional distribution of the estimates of the expenditure referred to
in subsection (1) of this section shall be consistent with the medium term developmental
priorities set out in the Medium Term expenditure Framework.
It also specifies the documents that will accompany the Annual Budget estimates.
PART IV provides for the budgetary planning of corporations and other related agencies.
According to this part, the Government corporation s and agencies and government owned
companies listed in the Schedule to this Act (in this Act referred of as “the Corporations”) shall,
not later than 6 months from the commencement of this Act and every three financial years
24
thereafter and not later than the end of the second quarter of every year, cause to be prepared and
submitted to the Minister their Schedule estimates of revenue and expenditure for the next three
financial years. Each of the bodies is also expected to submit to the Minister not later than the end
of August in each financial year:
(a)
An annual budget derived from the estimates submitted in pursuance of subsection (1) of this
section; and
(b)
Projected operating surplus which shall be prepared in line with acceptable accounting
practices.
The Minister shall cause the estimates submitted in pursuance of subsection (2) of this section to
be attached as part of the Appropriation Bill to be submitted to the National Assembly.
PART V – This part deals with the budgetary execution and achievement of targets by the relevant
bodies. The part dwells on issues like the preparation of Annual Cash Plan, Disbursement
Schedule, power of the Minister to approve virement, power to restrict further commitments,
restriction on the grant of tax relief, responsibility of the budget office to monitor and report on
implementation, and the application of Part V to States and Local Governments.
PART VI is on public revenue. It deals with forecast and collection of public revenue.
PART VII –deals with savings and asset management and the penalties for non compliance with
Part VI
PART VIII –is on public expenditures. It deals with the conditions for increasing government
expenditure and the conditions for increasing personnel expenditure. It also provides that that all
contracts with regards to the execution of annual budget shall comply with the rules and guidelines
on(a)
Procurement and ward of contracts; and (b) Due process and certification of contract. Part
111 also stipulated the effect of Violation of Public expenditure rules and the application of Part
VIII to States and Local Governments.
PART IX – provides the framework for debt management and places limits on consolidated debt of
federal, State and Local Governments. It also for the services of external debt. In this connection,
the Act provides that the servicing of external debts shall be the direct responsibility of the
Government that incurred the debt and that the cost of servicing Federal Government guaranteed
loans shall be deducted at source from the share of the debtor Government from the Federation
Account.
25
PART X provides the conditions of borrowing and verification of compliance limits. It provides a
framework for lending by financial institutions and laid out certain prohibitions against the CBN
in its relation with Government agencies and Parastatals. It also provides that the Minister may
with the approval of the Federal Executive Council, grant guarantees on behalf of any Government
in the Federation.
PART XI – for transparency and accountability in the conduct of government affairs. It states that
the Federal Government shall ensure that its fiscal and financial affairs are conducted in a
transparent manner and accordingly ensure full and timely disclosure and wide publication of all
transactions and decisions involving public revenues and expenditures and their implications for its
finances. It also provides that the National Assembly shall ensure transparency during the
preparation and discussion of the Medium-Term Expenditure Framework, Annual Budget and the
Appropriation Bill. In line with the transparency and accountability, the Act provides for the
publication of Audited accounts and Publication of a summarized report on budget execution
PART XII – is on enforcement. It states that a person shall have legal capacity to enforce the
provision of this Act by obtaining prerogative orders or other remedies at the Federal High Court,
without having to show any special particular interest.
PART XIII – makes sundry and miscellaneous provisions while part XIV gives interpretation of
certain concepts used in the Act.
3.8
MODEL FINANCIAL MEMORANDA FOR LOCAL GOVERNMENT
On the 15th of June 2001, the Federation Account Allocation Committee (FAAC) set up an
Ad Hoc committee to carry out the review and standardization of the accounts of Federal,
States and Local Governments with the following terms of reference:
1.
To examine and appraise the existing Public Sector Accounting Records
and
their
relevance to the Published Annual Accounts.
2.
To study the current structure of Public Sector Accounting in relation to
International Standards with IFAC Exposure papers.
3.
To determine the relevance of Current Public Sector records to the proposed
standard models.
4.
To determine various users of Public Sector Financial Statements and their
Financial information needs.
26
5.
To harmonize the Federal, States and Local Government Financial Reporting System.
6.
To recommend appropriate Financial Reporting Standards that are compatible
with
modern information technology.
7.
To set Accounting Standards that are capable of generating accurate Financial
information on a timely manner and
8.
To make any other recommendations as may be considered fit and desirable.
According to the 2001 Committee Report, identified the following negative features in the
then existing financial statements of the three tiers of Government:
1.
Disjointed and Unrelated statements.
2.
Difficult to understand Voluminous size.
3.
Little or no use to many of the End users
4.
Irrelevant.
5.
Lacks materiality
6.
Unreliable
7.
Lacks faithful representation
8.
Lacks Prudence Incompleteness Lack of comparability.
The 2001 Committee consequently made the following recommendations:
1. The continuous use of cash basis in Government accounting
2. The following seven statements:
i.
Statement No. 1: Responsibility for Financial Statement
ii.
Statement No. 2: Statement of Opinion of Auditor-General
iii.
Statement No. 3: Cash Flow Statement
iv.
Statement
No. 4: Statement of Assets and liabilities
v.
Statement
No. 5: Statement of Consolidated Revenue Fund
vi.
Statement
No. 6: Statement of Capital Development Fund
vii.
Statement
No. 7: Notes to the Financial Statements
However, only the following statements are applicable to the Local Government Councils:
Statement
No. l:
Statement of Financial Responsibility
Statement
No.2:
Statement of Opinion of Auditor-General for Local Government
Statement
No.3:
Cash Flow Statement
Statement
No.4:
Statement of Assets and liabilities
Statement
No.5:
Statement of Revenue and Expenditure
Statement
No.6:
Notes to Financial Statements.
According to FAAC, following the recommendation of the six statements, the need to review the
27
2 nd e d ition of Financial Memoranda for local Governments became very imperative. The Institute
of Chartered Accountants of Nigeria (ICAN) Abuja District Society was mandated to carry out the
review and accommodate the six statements. The review carried out by the District Society formed
the basis for the 3,d Edition of the Model Financial Memoranda. The review process was
coordinated by the States and Local Government Affairs Office in the Presidency.
The third edition of the Model Financial Memoranda consists of seven parts and forty five
chapters as follows:
PART 1: FINANCIAL DUTIES AND RESPONSIBILITIES
CHAPTER 1: Financial Duties and Responsibilities
PART II: THE ESTIMATES
CHAPTER 2: The Framework and purpose of Estimates
CHAPTER 3: Preparation of Annual Estimates
CHAPTER 4: Reallocation of Voted Monies and Supplementary Estimates
PART III: CARE AND CUSTODY OF LOCALGOVERNMENT FUNDS
CHAPTER 5: Care and Custody of Local Government Funds
PART IV: REVENUE COLLECTION AND CONTROL
CHAPTER 6: Collection of Revenue and Other Monies
CHAPTER 7: Control of Receipts and Other Revenue Earning Books
CHAPTER 8 : Loss of Funds or Revenue Earning Books
CHAPTER 9 : Counterfeit or Obsolete Currency
CHAPTER10: Community Tax
:
CHAPTER11: Community Rate
CHAPTER12: Rates
PART V: EXPENDITURE
CHAPTER 13: Control of Expenditure
CHAPTER 14: Payment Procedure.
CHAPTER 15: Staff Matters
CHAPTER 16: Personal Advance
CHAPTER 17: Contracts, Including Jobbing Orders and Local Purchase Orders
PART VI: ACCOUNTS
CHAPTER 18: The Main Books of Account and other Accounting Records
CHAPTER 19: The Cash Book
28
CHAPTER 20: The Journal
CHAPTER 21: The Revenue Expenditure Abstracts
CHAPTER 22: The Main Ledger and Its Reconciliation
CHAPTER 23: Subsidiary Ledgers and Records.
CHAPTER 24: Accounting for Investments.
CHAPTER 25: Accounting for Investments
CHAPTER 26: Accounting for Capital Expenditure
CHAPTER 27: Accounting for Loans and Statutory Allowances/Grants
CHAPTER 28: Accounts of Commercial Services
CHAPTER 29: Renewals Fund Account
CHAPTER30: Accounting for Transactions with State Government and Governmental
Agencies
'
CHAPTER 31: Monthly and Other Checks
CHAPTER 32: Annual Accounts
CHAPTER 33: Cost Accounts
CHAPTER 34: Stores Accounting Custody and Control of Stores
CHAPTER 35: Suspense, Unallocated Stores and Vehicle Account
CHAPTER 36: Special Rate Accounts
CHAPTER 37: Accounting Machines: Management Accounting; Cash Mow Management
Appendix to Chapter 37: Inventories of Local Government Properties and Equipment..
CHAPTER 39: Internal Audit Queries and Sanctions
PART VII: MISCELLANEOUS
CHAPTER 40: Internal Audit & Checks
CHAPTER 41: Development Plans
CHAPTER 42: Other Matters
CHAPTER 43: Information Technology
CHAPTER 44: List of Forms
CHAPTER 45: General Review
Self-Assessment Exercise
1. Discuss any five (5) legal documents which form the basis of Public sector accounting in
Nigeria
29
3.9
ACCRUAL ACCOUNITNG MANUAL FOR FEDERAL, STATES AND LOCAL
GOVERNMENTS
In the year 2010, the Federal Republic of Nigeria took a decision in respect of public sector entities
accounting and reporting to migrate to the International Public Sector Accounting Standards
(IPSAS). This decision was taken by the Federal Executive Council at its meeting held on the 28
July, 2010. In order to implement this decision, the Federation Account Allocation Committee
(FAAC) set up a Technical Sub- Committee to draw up the Roadmap for IPSAS Implementation.
In line with the recommendation of the Technical Sub-Committee, FAAC set January 1, 2016 as
the date for the commencement of IPSAS Accrual Accounting for all Public Sector Entities (PSE)
in Nigeria. In this system of accounting, the financial decisions are not seen merely from the point
of view of cash inflow or outflow but also from their impact on the asset and liability position of
the government, future funding requirements of assets enabling planning of their timely
maintenance and replacement. The implementation of IPSAS will further give disclosures on
account of contingent assets and contingent liabilities so that risk associated with the guarantees
issued and letters of comfort can be better assessed by the user of the financial statements. It
bridges the gap leftover by cash accounting by inclusion of accrued expenses and revenues
(receivables and payables), physical assets, capital work- in-progress and depreciation, pension
liabilities and provisions etc. in the accounting system.
The Accrual Manual contains defined key implementation guidelines, necessary documentation
and accounting procedures to facilitate the adoption of IPSAS in Public Sector Entities (PSEs) in
Nigeria. It covers accounting treatment requirements in line with relevant sections of IPSAS for
the purpose of coordinating the financial reporting objectives of the Federal Government, States
and Local Governments.
IPSASs are accounting standards for application by national governments, regional (e.g. state,
provincial, territorial) governments, local (e.g. city, town) governments and related governmental
entities (e.g. agencies, boards and commissions). IPSASs are widely used by intergovernmental
organizations. However, they do not apply to Government Business Enterprises (GBEs).
The standards aim at improving the quality of general purpose financial reporting by public sector
entities, leading to better informed assessments of the resource allocation decisions made by
governments, thereby increasing transparency and accountability.
The stated objectives of the Manual are to:
30
1.
Provide general direction and guidance on accrual accounting;
2.
Assist preparers of General Purpose Financial Statements (GPFS) in the
public sector to
account for transactions in line with accrual accounting concepts and principles;
3.
Minimize arbitrary and subjective application of methods and procedures in the
treatment of financial transactions;
4.
Act as reference material for operators of accrual accounting in performing financial
management task;
5.
Serve as a training resource for new and existing personnel;
6.
Serve as a reference document for auditors, consultants and other stakeholders to
understand and evaluate the financial management systems in Nigeria; and
7.
Provide a guide for adequate recording of funds How through sufficient recording,
reporting, and usage and thereby ensure proper monitoring of the application and utilization
of funds.
The Manual covers public entities in the three tiers of government in Nigeria (Federal, State and
Local Governments) other than GBEs.The Manual are to be used in conjunction with other
relevant extant laws and Financial Authorities. The Manual was prepared taking into cognizance
all the 32 Standards issued and operational to date and the Conceptual Framework for the
preparation of General Purpose Financial Statements (GPFR) as issued by the IPSAS Board in
October, 2014.
3.10
FINANCIAL REGULATIONS
The Minister of Finance issues financial regulations; it assigned responsibility on financial
matters of the Federal Government, in accordance with, and under Finance (Control and
Management) Act, 1958 as amended. The regulations are internal regulations that are intended to
provide a framework for financial control and place prime responsibility for elementary control
and duties on executive departments, whilst recognizing the role of internal audit.
They are useful in the following ways:1.
They outline good systems, organization and procedures of basic management.
2.
They give backing to internal audit and establish it as a "tool of management”; this avoids
the function being, viewed as a "tool of an interfering treasurer
3.
They help internal audit allocate responsibility and maintain its "independence”
making a clear separation between departmental and audit duties.
4
They ensure that operations remain within the law.
31
Financial regulations should seek to outline the system of Financial Administration operated at
departmental level, without necessarily setting out detail arrangement or system that might be
incorporated in separate codes or manuals of financial instructions.
3.11 ACCOUNTING MANUALS
Manuals of staff instructions arc designed to cover the details not dealt with in the financial
regulations. Their aim is to secure sound financial work through the production of detailed
financial procedures and the encouragement of standard financial practices.
Accounting manuals lay down procedures for individual financial matters of a routine and
repetitive nature. These could include procedures on cash collection, calculation of wages, custody
of stores and reconciliation procedures, purchasing routines, certification and payment of
accounts, control of income, procedure for effecting insurance and making claims.
Accounting manuals may be defined as a systematic written code of instructions and
administrative practice dealing with department procedures and clerical processes relating to
transactions with a financial significance, and operating at a a lower organizational level than
financial regulations.
The contents of the accounting manuals should be settled after thorough discussion with the
finance and service departments, and revise as circumstance change. The manuals should be part
of the organization official arrangements, and the standing orders of the organization should
make compliance with them compulsory.
3.11.1 Advantages of Accounting Manuals
The advantages to be gained from compiling and using detailed manuals include the following:
1. They are for achieving sound and uniform control.
2. The process of codification itself leads to improvement, economics and better understanding.
3. They guard against the danger, and disadvantages of staff changes and the accident dropping
of safeguards due to the inadequate instruction of newcomers.
4. They are a simple way to define individual responsibilities and to place them clearly and
formally.
5. They can be more easily amended and kept up to date than can financial regulations.
6. They are useful for training new members of staff.
32
7. Many details of domestic procedure, which need to be laid down clearly, but which are too
small and numerous to warrant inclusion in regulations can be accommodated in manuals.
8. They are ideal instruments for relating the broad rules laid down in standing orders to
varying circumstances. Each department taken is in turn and the best way of applying
the general principles worked out in conjunction with the department.
9. They provide auditors, both internal and external, with a complete recorded departmental
procedures, and newcomers with authoritative instructions. Auditors can be more readily
trained and auditors work, loads more easily assessed.
10. They enable lower grade departmental finances and audit staff can be used on some jobs that
would otherwise be performed by more senior staff.
Self- Assessment Exercise
1.
State the advantages of accounting manuals.
3.11.2 Disadvantages of Accounting Manuals
The disadvantages of accounting manuals include the following:
1. They can stifle initiative and can provide a defense of inappropriate action.
2. Manuals are expensive to compile. It may be difficult and time consuming to commit
Complex and numerous procedures and operations into writing.
3. Errors and omissions can be vital
4. They may be interpreted by the letter rather than by the spirit.
5. They may be too inflexible and, unless constantly reviewed may become fixed and rigid.
3.12
WRITTEN RULES
Written rules offer several advantages over reliance on unwritten practices and oral tradition,
provided they are complete, well-constructed, regularly reviewed and strongly administered.
Advantages of written include the following:
a. Protection is provided from the bad effects of such fluctuations as changes in
committee memberships due to election, officials coming and going and loss of
personalities with an aptitude for efficient financial administration.
b. At the policy making level adequate regulations help to keep financial affairs in
perspective, and guard against ill-conceived planning, major decisions being
33
inadequately considered and lopsided development.
c. Formal rules make practices more intelligible. New members and new officers,
who can
make only a limited contribution until they are acquainted with the organization's
procedures and practices, can at once see what is expected of them. Officers can better
understand their duties.
d. The council or board knowing who is responsible for the various aspect of financial
administration.
e. A written code also makes for uniformity between different departments, periods,
and
guards against the discarding of precautions. Accidental lapses and deliberate abuse are
also more likely where there are no rules.
f.
They facilitate the assessment of officers' responsibilities and also provide a starting point
for reviewing financial methods.
g. They are of great help to both internal and external auditors. The auditor knows more
accurately the tasks of those whose work he is auditing, he finds it easier to bring
shortcomings into focus, and his time is saved by the greater uniformity of approach taken
by service departments.
Self- Assessment Exercise.
1. List the advantages of written rules .
4.0
SUMMARY
This unit discussed the legal and regulatory framework of public sector accounting. It discussed
the provisions of the 1999 Constitution affecting public sector accounting in Nigeria. The legal
and regulatory framework for public sector accounting and financial management consists of the
following among others:(i) The Nigerian Constitution of 1999, (ii) Finance
(Control
and
Management), Act 1958, (iii) Fiscal Responsibility Act (FRA) 2007, (iv)Public Procurement Act
(PPA) 2007, (v)Freedom of Information Act (FOI) 2011, (vi)The Financial Regulations (2009),
(vii)The Nigerian Extractive Industries Transparency Initiative Act 2007 (viii)
The
Federal
Treasury Accounting Manual, (ix)Treasury Circulars, (x) The Procurement Procedures Manual:
Issued by the Bureau of Public Procurement (BPP).
5.0
CONCLUSION
In this unit, you have learnt about the various legal documents which form the basis of Public
34
sector accounting in Nigeria. In the next unit, you will learn about the various types of accounting
basis.
6.0 TUTOR MARKED ASSIGNMENT
1
List the objectives of the Accrual Accounting Manual for federal, states and local
governments.
2.
List the seven statements prescribed for publication by the three tiers of government by the
Financial Memoranda for Local Governments.
7.0
REFERENCES/ FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition 3, Lagos:
Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public SectorAccounting
and finance, Benin City: Mindex Publishing Company Limited
FAAC(2015). Accrual accounting manual, for all public entities in Nigeria, Abuja: FAAC SubCommittee on IPSAS.
ICAN (2014).Public Sector Accounting and Tinance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on Public Sector Accounting and Finance, Benin City,
Unpublished
Ogunyemi, A.O. (2014) Auditing and corruption in Nigeria: A review of the legal weight of the
audit act of 1956, Historical Research Letter, 15, 1-7
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government Accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
35
UNIT 3: ACCOUNTING BASES AND PRINCIPLES
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Bases of Public Sector Accounting
3.1.1
3.1.2
3.1.3
The Cash Basis
3.1.1(1)
Advantages of Cash Basis
3.1.1(2)
Disadvantages of Cash Basis
3.1.1(3)
Modified Cash Basis
Accrual Basis
3.1.2.(1)
Advantages of Accrual Basis
3.1.2(2)
Disadvantages of Accrual Basis
3.1.2(3)
Modified Accrual Basis
Commitment Basis
3.1.3.1
Advantages of Commitment Basis
3.1.3.2
Disadvantages of Commitment Basis
3.2
Accounting principles
3.2.1
Accounting Concepts
3.2.2
Accounting conventions
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0
INTRODUCTION
In this unit, you will learn about the various bases of accounting in the public sector including the
cash bases, the accrual bases and the commitment basis. You will also learn the modified forms of
these bases where applicable. In addition, you will learn about the applicable accounting principles
in the public sector such as accounting concepts and accounting conventions.
36
2.0
OBJECTIVES
At the end of the unit, the student should be able to:
1. Understand the bases of public sector accounting including the cash bases, the accrual
basis, and the commitment bases.
2. Appreciate the advantages and disadvantages of each of the bases.
3. Know the accounting principles applicable in the public sector
4. Understand the various accounting concepts
5. Understand the various accounting conventions
3.1
Bases of Public Sector Accounting
There are three bases under which the financial statements of a public sector enterprise are
compiled. These are:
(a) The cash basis.
(b) The accrual basis.
(c) The commitment basis.
3.1.1 The Cash Basis
Under cash basis transactions are recognized only when cash is received or disbursed. It is
immaterial when the underlying transaction was validly concluded. Financial statements prepared
under cash basis do not include assets and liabilities not arising from cash transactions. They
completely ignore the effects of accounts receivable, accounts payable and other items of accrual.
Cash basis financial statements do not present financial position or results of operations in
conformity with generally accepted accounting principles (GAAP). Cash basis financial statement
representations can only be in conformity with GAAP where all accounts receivable, accounts
payable, and other accrued items are non-existent or insignificant. This is difficult to find in
practice. Distortions can arise in cash basis accounting financial statement amounts due to shifts in
the timing of cash receipts and disbursements reflecting underlying economic events near the end
of a fiscal period. To manipulate its financial statement position, a government may speed up or
slow down cash collections and payments near the end of the period. This will invariably affect the
government's financial position and results of operations.
37
3.1.1(1)
Advantages of Cash Basis
Some of the advantages of cash basis of accounting include:
(a)
It is simple to understand.
(b)
It saves time and is easy to operate
(c)
It removes debtors and creditors from the books of accounts.
(d)
It enables the easy identification of those who authorize payments and collect revenue.
(e)
It allows for comparison between the amount provided in the budget and that actually
spent.
(f)
Since the cost of fixed assets is written off in the year of purchase, fewer accounting
entries are made.
(g)
It is compatible with the fund system of accounting applicable in the public
(h)
It is also compatible with government’s planning and budgeting system.
sector.
3.1.1(2) Disadvantages of Cash Basis
Some of the disadvantages of the Cash Basis are:
(a)
It is not compatible with the harsh realities of financial transactions. It recognised only the
settlement of liabilities. There are five stages through which a spending decision passes.
These are:
(i)
Issue of order or contract for the supply of goods or services.
(ii)
Supply of goods or services - acknowledgment of liability.
(iii)
Settlement of the amount of the good or service received.
(iv)
Consumption of value.
The cash basis of accounting records only stage (iii) while the accrual basis takes care of
stages (ii), (iii) and (iv). The commitment basis records stages (i) to (iv).
(b)
It does not provide for depreciation since assets are written off in the year of
purchase.
(c)
It does not convey an accurate picture of the financial affairs at the end of the
year.
(d)
The cash basis cannot be used for economic decisions as it tends to hide basic information.
For example, some of the missing information relate to fixed assets, debtors and creditors.
(e)
It does not compatible with the matching concept.
38
3.1.1(3)
Modified Cash Basis
Under this basis, the books of accounts are left open for a maximum of three months after the end
of the year, so as to capture substantial amount of income or expenses relating to the year just
ended.
3.1.2 Accrual Basis
The accrual basis of accounting recognizes transactions when they occur irrespective of when the
cash payment is made. The use of accrual accounting techniques removes the distortions in
financial statements due to shifts in the timing of cash flow and related underlying economic
events near the end of a fiscal period.
This means that the disbursement of cash has no effect on the reporting of revenues and expenses.
Accrual accounting techniques enhance the comparability of financial statements from period to
period and from one governmental entity to another. All proprietary and fiduciary funds use the
accrual basis of accounting in their fund financial statements under GAAP.
Under the accrual basis, revenue is recognised in the accounting period in which the revenue
becomes objectively measurable and earned. In other words, income con only be recognised when
it the amount can be determined accurately. This means that the actual amount of a transaction
must be known or it is possible to estimate the amount. For revenue to be earned by the
government, it must have provided the goods or services. For example, the Federal Government of
Nigeria rents the National Stadium to a private group at #2000 per participant: (i) The revenue is
earned when the group uses the Stadium, and (ii) the revenue becomes measurable when the
government knows how many participants attended.
It is only after these two criteria are met, that the government would record the transaction as
revenue irrespective of when the group pays the bill.
Also, under the accrual basis of accounting, expenses are recognized in the period incurred, if
measurable. To incur an expense, the item purchased must be received and consumed (used) or the
vendor must have performed the service. For example, the government must receive and use the
purchased consumable before it can report an expense for the cost of these supplies. For an
expense to be measurable, we must be able to determine the amount. Usually the amount is known
invoice for the purchase of the good or service is received. However, if there is a contract where
the amount is stated or the amount could be estimated, the amount could be considered as meeting
the “measurable” criteria.
39
3.1.2.(1) Advantages of Accrual Basis
The advantages of this basis can be summarised as follows:
a.
It makes allowances for the reduction in the value of assets used to generate the revenue of
the enterprise through the process of periodic depreciation.
b.
It reveals an accurate picture of the state of financial affairs at the end of the period.
c.
It could be used for both economic and investment decision-making as all parameters for
performance appraisal are available.
d.
It is consistent with the 'matching concept.
e.
It takes a realistic view of financial transactions.
3.1.2(2) Disadvantages of Accrual Basis
(a)
It is very difficult to understand by managers.
(b)
It is not compatible with the fund system of accounting applicable in the public
(c)
It is also not compatible with government’s planning and budgeting system.
(d)
It does not permit easy delegation of work in certain circumstances.
3.1.2(3)
sector.
Modified Accrual Basis
All governmental funds use the modified accrual basis of accounting. Under the modified accrual
basis of accounting, revenues are recognized when a transaction meets two criteria:
(i) Measurable, and (ii) Available
As stated above, revenues are said to be objectively measurable if the amount can be determined
accurately. Some revenues such as fees, licenses, fines etc. are not considered measurable until
they are received in cash. They become measurable only when received. In other words, they
become recognised when they meet one of the two revenue recognition criteria under the modified
accrual basis of accounting.
Available means that the revenue was collected during the year or will be collected soon enough
after the end of year to pay liabilities of the current period. In practice, the term "available" can be
interpreted in different ways. Some of the alternative interpretations are:
40
(i)
Collections are within a period of time after year-end equal to the government's normal bill
paying cycle.
(ii)
Collections are within a specified, standardized time period after year-end, such as 30, 60,
or 90 days.
(iii)
Collections are within 12 months after year-end (i.e., the transaction results in a current
asset at year-end).
GAAP allow flexibility when applying the “available” criterion. The only thing that needed to be
done is the term should be should be used consistently from year to year.
GAAP have special rules regarding when to record expenditure for consumable inventories (e.g.,
printing supplies). Governmental funds, using the modified accrual basis of accounting, may use
either of two methods: (i) Purchases method (when you buy it), and (ii) Consumption method
(when you use it)
Under the purchases method the expenditure is recorded when the inventory is purchased
(expenditure criteria are met). The journal entry is as follows:
DR
Expenditures
CR
10,000
Accounts payable (a liability account)
#10,000
Under the consumption method, the expenditure is recorded when the item is used. For example,
when the inventory is purchased the following journal entry applies:
DR
Inventory (an asset account)
CR
10,000
Accounts payable (a liability account)
#10,000
When the inventory is used, (e.g., they use #8000 in value), the following journal entries
would be made:
DR
Expenditures
^8,000
41
CR
Inventory (an asset account)
^8,000
Proprietary funds use the consumption method.
The modified accrual basis falls somewhere between the cash basis and the accrual basis. Revenue
recognition under the modified accrual basis is similar to revenue recognition under the accrual
basis, as long as the cash is received soon enough after year-end to pay current year liabilities.
Generally expenditure is recognized and recorded as it would be under the accrual basis, as long as
the liability resulting from the expenditure is liquidated from current resources.
3.1.3 Commitment Basis
It is a basis that records anticipated expenditure evidenced by a contract or a purchase order. In
public sector financing, budgetary and accounting systems are closely related to the commitment
basis. It involves the recording of obligations of the entity to make some future payments at the
time they are reasonably foreseen, not at the time services are rendered and/ or billings are
received. Such obligations include contractual liabilities (when purchase orders or contract for
goods or services are issued) or conditional liabilities (e.g. an arrangement that require the
spending of funds if conditions specified in the arrangement are met).
There are different types of commitments and they include:
1.
Continuing Commitments: These require a series of payments or
settlement
actions
over an indeterminate period of time. An example is the obligation to make monthly
payment for telephone service or staff entertainment.
2.
Specific Commitments: These require a single payment or a determined series of
payments over a determinate period of time. Examples of specific commitments
include contract for goods and services or similar arrangement like leasing of assets
and equipment.
3.1.3(1) Advantages of Commitment Basis
(1)
It closes the accounting gap/lag between budget and actual spending that could
lead
budget overrun.
(2)
A separate payment tabulation is available when required.
(3)
It assists in finance prudence in the public sector since the budgeted amount can
be compared to committed amount.
42
always
to
(4)
Adjustment occurring when actual expenditure has been obtained does not affect the final
accounts.
(5)
It assists real time planning within the long-range plan of the government, ministry
or
department.
(6)
It is an aid to financial control. A commitment is regarded as a char It takes a realistic view
of financial transactions.
(7)
It reveals an accurate picture of the state of financial affairs at the end of the period.
(8)
It is used for both economic and investment decision-making, as all parameters or
performance appraisals are available.
(9)
It aligns with the 'matching concept.
(10)
It makes allowance for the diminution in the value of assets employed to generate the
revenue of the enterprise.
3.1.3(2) Disadvantages of Commitment Basis
The system of Commitment Basis of Accounting has the following disadvantages:
(1)
Commitments are futuristic and this is tainted with uncertainties. For instance, a contract
may be cancelled or amended.
(2)
The system involves extra work. Actual figures have to be substituted for the
commitment provisions to finally determine the running balances under the sub- heads
of expenditure.
(3)
Over-expenditure is more under commitment basis in the expectation that Government
may finally release fund to settle the legal obligations.
(4)
At the year end, all commitments that are the subject of unfulfilled orders will have to be
written back to reflect the exact picture of the transactions which took place during the
year.
(5)
Balances which ought to have lapsed in the Vote Book at the end of the year may be spent
by issuing local purchase orders to exhaust the votes.
43
(6)
There is also the difficulty of measuring the exact amount of commitment(s) in
any
particular period as many orders and deliveries are not always in accordance with the
original order or contract.
(7)
It is unsuitable for flawless financial control in the sense that an entity can enter
into
commitment, which lacks precision as to the timing and amount of expenditure.
For instance, a country may sign on an external loan commitment without a draw-down of
the loan.
(8)
There is lack of security, which is caused by numerous accesses to the financial
information system.
(9)
The relevance of commitment accounting when related to historical costs and also during
periods of inflation is limited. Profit figures become merely amounts, which can be spent
without improving on initial capital.
Self- Assessment Exercise.
1. Briefly discuss (i) cash basis (ii) accrual basis, stating their merits and demerits.
3.2
Accounting Principles
Various accounting systems and techniques are designed to meet the needs of the management.
The information should be recorded and presented in such a way that management is able to arrive
at right conclusions. The ultimate aim of the management is to increase profitability and reduce
losses. In order to achieve the objectives of the concern as a whole, it is essential to prepare the
accounting statements in accordance with the generally accepted principles and procedures.
In order to maintain uniformity and consistency in preparing and maintaining books of accounts,
certain rules or principles have been evolved. These rules/principles are classified as concepts and
conventions. These are foundations of preparing and maintaining accounting records. In this lesson
we shall learn about various accounting concepts, their meaning and significance.
The term principles refers to the rule of action or conduct to be applied in accounting. Accounting
principles may be defined as "those rules of conduct or procedure which are adopted by the
accountants universally, while recording the accounting transactions.
The accounting principles can be classified into two categories: (a) Accounting Concepts, and (b)
Accounting Conventions.
44
3.2.1 Accounting Concepts
Accounting concepts are the assumptions or postulates on financial statements are prepared. They
are the basic or fundamental assumptions upon which financial statements are prepared.
The following are the important accounting concepts:
(1)
Entity Concept;
(2)
Dual Aspect Concept;
(3)
Accounting Period Concept;
(4)
Going Concern Concept;
(5)
Cost Concept;
(6)
Money Measurement Concept;
(7)
Matching Concept;
(8)
Realization Concept;
(9)
Accrual Concept;
(10)
Naira Value Concept.
3.2.1 ACCOUNTING CONCEPTS
3.2.1(1) Entity Concept: Separate entity concept implies that entity whether public or private is a
body has a separate existence distinct from its owners. This means that irrespective of the legal
form of the entity, it is treated as a separate entity in accounting. Flowing from the foregoing, if the
government sets up a parastatal, the parastatal will be treated as an entity different from the
government in its books of accounts.
The following points highlight the significance of business entity concept:
1
This concept helps in ascertaining the financial position of the entity as only the
operating expenses and revenues are recorded.
2
This concept restraints accountants from recording of official’s private/personal
transactions.
3
It also facilitates the recording and reporting of operational transactions from the business
point of view
4.
It is the very basis of accounting concepts, conventions and principles.
45
3.2.1(2)
Dual Aspect Concept: According to this concept, every business transaction
involves two aspects, namely, for every receiving of benefit and. there is a corresponding giving of
benefit. The dual aspect concept is the basis of the double entry book keeping. Accordingly, for
every debit there is an equal and corresponding credit.
The accounting equation of the dual concept is:
Capital + Liabilities = Assets
(or)
Assets = Equities (Capital)
The dual concept is significant in the following ways:
1.
It helps accountant in detecting errors.
2.
It encourages the accountant to post each entry in opposite sides of two affected accounts.
3.2.1(3)
Money measurement concepts
Money measurement concept assumes that all business transactions should be in terms of money.
In Nigeria, such transactions are in terms of naira. The unit of measurement is money. Under
money measurement concept, only facts capable of being expressed in monetary terms and
captured and recorded in the books of account. Another aspect of this concept is that records of
transactions are kept not in the physical units but in the monetary unit.
The following points highlight the significance of money measurement concept :
1.
This concept guides accountants what to record and what not to record.
2.
It helps in recording all transactions uniformly.
3.
If all the transactions are expressed in monetary terms, it will be easy to understand
the accounts prepared by the entity.
4.
It facilitates comparison of performance of two different periods of the same entity or of
the two different firms for the same period.
3.2.1(4)
Going concern concept
According to this concept a every entity will continue to carry on its activities for an indefinite
period of time. Simply stated, an entity will not cease to exist in the foreseeable future. The going
concern concept is a very fundamental assumption of accounting. It provides a basis for the
preparation of financial statements.
46
The following points highlight the significance of going concern concept:
1. This concept facilitates preparation of financial statements.
2. It forms the basis for the charging of depreciation on fixed asset.
3. It is of great help to the stakeholder, because, it assures them that they will continue to get
their investments.
4. In the absence of this concept, the cost of a fixed asset will be treated as an expense in the
year of its purchase.
6. An entity is judged for its capacity to earn income in future.
3.2.1(5) PERIODICITY OR ACCOUNTING PERIOD CONCEPT
All the transactions are recorded in the books of accounts on the assumption that income and
expenses on these transactions are to be ascertained for a specified period. This is known as
accounting period concept. Thus, this concept requires that financial statements should be prepared
at regular intervals. But usually one year is taken as one accounting period which may be a
calendar year or a financial year. The year that begins from 1st of January and ends on 31st of
December is known as Calendar Year. If the year begins from 1st of April for example and ends
on 31st of March of the following year, it is known as financial year. In Nigeria, the financial year
is coterminous with the calendar year. In other words, the government financial year begins from
January 1 and ends on December 31 every year.
The periodicity concept is significant in the following ways:
1.
It helps in the prediction of the future prospects of the government.
2.
It helps in calculating the income of businesses and individuals for purposes of
taxation.
3.
It also helps banks, financial institutions, creditors, and other users of public
sector
accounting information to assess and analyse the performance of
government
for
a
particular period.
4.
It also helps the government to distribute their income over competing needs at
3.2.1(7)
regular
COST CONCEPTS
According to the cost concept all assets are recorded in the books of accounts at their purchase
price and not the market. The purchase price includes the cost of acquisition, transportation and
installation. It means that fixed assets like building, plant and machinery, furniture, etc are
recorded in the books of accounts at the price paid for them.
Purchase price as used her means original or acquisition cost only for new assets. For assets that
have been used by the entity for a period of time, it means original cost less provision for
diminution in value (depreciation). The cost concept is also known as historical cost concept. The
47
effect of cost concept is that if the business entity does not pay anything for acquiring an asset this
item would not appear in the books of accounts.
The cost concept is significant in the following ways:
1.
It requires asset to be shown at the price it has been acquired, which can be verified from
the supporting documents.
2.
It is useful in establishing diminution if the value of the asset.
3.
The effect of cost concept is that if the entity does not pay anything for an asset, this item
will not be shown in the books of accounts.
3.2.2 ACCOUNTING CONVENTIONS AND STANDARDS
An accounting convention refers to common practices which are universally followed in recording
and presenting accounting information of the entity. They resemble the customs, tradition, etc. in a
society. Accounting conventions evolved over the years from practice. They facilitate uniform
recording in the books of accounts. Accounting Conventions help in comparing accounting data of
different entities and units or of the same entity or unit for different periods. The most important
conventions which have been used for a long period are :
1.
Consistency.
2.
Full Disclosure.
3.
Materiality.
4.
Conservatism.
3.2.2(1) Consistency
The convention of consistency means that same accounting principles should be used consistently
for preparing financial statements year after year. There are basically three types of consistency:
(i)
Vertical consistency. This applies to the same Organization. It is to be found within the
group of inter-related financial statements of an Organization on the same date. For
example when fixed assets have been shown at cost price and in the interrelated income
statement depreciation has also been charged on the historical cost of the assets.
(ii)
Horizontal consistency. This refers to consistency on a time basis. This refers to
consistency between financial statements of the same entity from period to period. Thus, it
helps in comparing performance of the business over a period of time.
48
(iii)
Dimensional consistency. This refers to consistency in the financial statements of two or
more Organizations within the same line of business. For example, two or more state
governments; two or more local government councils; two or more parastatals of
government. This consistency is to be found in the statements of two different entities of
the same period. Whenever a change in method is necessary, it should be disclosed by way
of footnotes in the financial statements of that year.
The consistency convention is significant because:
l.
It facilitates comparative analysis of the financial statements.
2.
It ensures uniformity in charging depreciation on fixed assets and valuation of closing
stock.
3.2.2(2)
Full Disclosure
Convention of full disclosure requires that all material and relevant facts concerning financial
transactions should be fully disclosed in the financial statements. Full disclosure means that there
should be full, fair and adequate disclosure of accounting information. Adequate means sufficient
set of information to be disclosed. Fair indicates an equitable treatment of users. Full refers to
complete and detailed presentation of information. Thus, the convention of full disclosure suggests
that every financial statement should fully disclose all relevant information. Let us relate it to the
business. The business provides financial information to all interested.
The convention of full disclosure is significant in the following ways:
l.
It helps in the comparison of financial statements of different entities and units.
2.
This can also help in the comparison of financial statements of the same entity or unit over
time.
3.
This convention is of great help to stakeholders for in making decisions of interest to them.
4.
The information under the convention of full disclosure is very reliable.
3.2.2 (3)
Materiality
Under this convention, only material or significant facts should be disclosed in the financial
statements. Material fact means the information which will influence the decision of its user.
Whether a fact is material or not depends on its nature and the amount involved. For let consider a
typical government unit. That purchases things like motor vehicles, refrigerator, air conditioners,
Computer etc. for the operation of the unit. These items are significant items and should, therefore,
be recorded in books of accounts in detail.
Say that the same unit bought items like pen, pencil, match- box and so on. This require little
amount of capital. The maintenance of the details of these small items is not considered of much
49
significance. The items that are significantly important are regarded as material and their details
are recorded. The items that are of less significance are immaterial facts or insignificant and their
details are not recorded in the books of account. Thus according to materiality convention
important and significant items should be recorded in their respective heads and all immaterial or
insignificant transactions should be grouped together under a different accounting head.
The materiality convention is significant in the following ways:
1.
It helps in minimising errors in calculation as it reduces the number of accounting entries to
be made.
2.
It helps in making financial statements more meaningful.
3.
It saves time and resources.
3.2.2(4)
Conservatism
The maxim for this convention is “Anticipate no profit, but provide for all possible losses”. It is
based on the policy of playing safe in regard to showing the recognition of income and expense.
The main objective of this convention is to show minimum surplus. For business units like
Government Business Enterprises (GBEs), the import of the conservatism convention is that Profit
should not be overstated. If profit shows more than actual, it may lead to distribution of dividend
out of capital. This is not a fair policy and it will lead to the reduction in the capital of the
enterprise.
The convention of conservatism is significant in the following ways:
1.
It helps in ascertaining actual profit.
2.
It is useful in situations of uncertainties and doubts.
3.
It helps in maintaining the capital of the enterprise.
Self- Assessment Exercise.
1. Discuss the accounting conventions as they apply to Public sector Organizations.
4.0
SUMMARY
In this chapter, the accounting bases and principles underlying the preparation of
financial
statements in the public sector were discussed. Three types of accounting bases were identifies: the
cash basis, the accrual basis, and the commitment basis. Under cash basis transactions are
recognized only when cash is received or disbursed. It is immaterial when the underlying
transaction was validly concluded. The accrual basis of accounting recognizes transactions when
they occur irrespective of when the cash payment is made.
The commitment basis records anticipated expenditure evidenced by a contract or a purchase
order. In public sector financing, budgetary and accounting systems are closely related to the
50
commitment basis. It involves the recording of obligations of the entity to make some future
payments at the time they are reasonably foreseen, not at the time services are rendered and/ or
billings are received.
In the unit accounting principles were also discussed. These are various accounting systems and
techniques designed to meet the needs of the management. Two types of accounting principles
were identified (a) Accounting Concepts, and (b)Accounting Conventions.
Accounting concepts are the assumptions or postulates on financial statements are prepared. They
are the basic or fundamental assumptions upon which financial statements are prepared
Accounting conventions refer to common practices which are universally followed in recording
and presenting accounting information of the entity. They resemble the customs, tradition, etc. in a
society.
5.0
CONCLUSION
In this unit, you have been taught the three basis of accounting for Public sector Organizations;
cash basis, accrual basis and commitment basis. You were also introduced to the accounting
concepts and conventions applicable to the public sector. This knowledge will serve as a basis for
understanding the subsequent units in this course.
6.0
TUTOR MARKED ASSIGNMENT
Fill in the blanks with suitable word/words
1.
The accounting concepts are basic .....................................................of
accounting.
2.
..........................................
that
enterprise
…………………concept
and its owners are two separate
assumes
business
independent entities.
3.
Fixed assets are shown in the books at their …………….. ………………………..
4.
The concept that a an entity or unit will not be closed down in the near future is known as
…………….. …………………………………………
5.
Recording of transactions in the books of accounts with a definite period is called …….
……………………………………concept.
6.
The accounting period in the Nigerian Government sector is …………………………
7.
According to accounting period concept, revenue and expenses are related to a
……………………………………………………………. period.
8.
The cost concept states that all fixed assets are recorded in the books of accounts at
……………………………………………………… price.
51
their
9.
Convention of consistency means that same accounting principles should be
used for
preparing financial statements ...…………………………………………
10.
The
……………………………….
convention
states
that
to
make
statements more meaningful, only significant and important items should be
financial
supplied
to the users.
11.
Convention of materiality states that insignificant items should be disclosed
under
……………………………………………………………………………
12.
Explain the convention of consistency with example.
13.
Explains the convention of materiality.
14.
Explain the accounting convention of full disclosure with example.
7.0
REFERENCES/ FURTHER READING
Adams, R.A. (2014) Public Sector Accounting and Finance made simple, revised edition 3, Lagos:
Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public Sector Accounting and
Finance, Benin City: Mindex Publishing Company Limited
FAAC(2015). Accrual Accounting Manual, for all public entities in Nigeria, Abuja: FAAC
Sub-Committee on IPSAS.
ICAN (2014).Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on Public Sector Accounting and Finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government Accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
52
UNIT 4
CHARTS OF ACCOUNTS UNIFORM REPORTING
CONTENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENTS
3.1
Introduction to charts od accounts
3.2
Objectives of a chart of accounts
3.3.
Principles and Factors for the Design of a COA
3.4
Nation charts of accounts and uniform reporting in NIGERIA
3.4.1
Introduction Nigerian charts of accounts
3.4.2
Definition of the Nigeria Charts accounts (COA)
3.4.3
Purpose of the national chart of accounts
3.4.4
Features of NCOA
3.4.5
Users of the NCOA
3.4.6
Structure of the NCOA
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0
INTRODUCTION
In this unit, you will learn about charts of accounts generally and Nigerian Charts of Accounts
specifically. You will also learn about the typical objectives of a chart of accounts Introduction to
charts of accounts and the principles and factors that guide their preparation. Thereafter, we will
study the charts of accounts in Nigeria called the National Chart of Accounts. In this respect, you
will learn about the definition of the Nigeria Charts accounts (NCOA). , it’s purpose, their features
and the users.
2.0
OBJECTIVES
At the end of the unit the student should be able to:
1.
Understand Principles and Factors for the Design of a COA
2.
Know the meaning Chart accounts (COA)
3.
Appreciate the purpose of the national chart of accounts in Nigeria (NCOA)
4.
Know the features of the National Chart of Accounts
53
5.
Know the users of and their uses of the National Chart of Accounts
6
Understand the structure of the NCOA
3.1
INTRODUCTION TO CHART OF ACCOUNTS
The concept of Chart of Accounts (COA) is well known in the private sector. However,
governments it is only recently that governments started to apply the same accounting principles
and processes commonly used by the private sector in financial management. The COA for a
private sector entity is designed to meet the information needs of the management and the
requirements of financial reporting standards. In the government sector, in addition to these
requirements, the concept of COA reflects the specificities of government operations and
accountability requirements.
According to Cooper and Pattanayak (20011), a well-functioning Performance Management
(PFM) framework includes an effective accounting and financial reporting system to support fiscal
policy analysis and budget management. Government business processes and decisions are
anchored on the flow of specific financial information/data between various stakeholders. The
provision of such information on government activities is an important function of the accounting
and reporting system which should capture, classify, record, and communicate relevant, reliable,
and comparable financial information for various purposes.
The COA is the cornerstone of a government’s accounting and reporting system and serves as a
key tool to meet its business requirements. It is a critical element of the PFM framework for
classifying, recording and reporting information on financial plans, transactions and events in a
systematic and consistent way. It is an organized and coded listing of all the individual accounts
that are used to record transactions and make up the ledger system.
3.2
OBJECTIVES OF A CHART OF ACCOUNTS
Countries have developed different approaches to address the information needs of governments
and as a result actual practices differ across countries. This is due mainly to the fact that each
country, based on its legal and administrative tradition, needs to have systems that cater to specific
control and information requirements for government budget management. According to
Cooper, & Pattanayak, ((2011), COA should, generally, meet the following objectives:
1.
Control. This includes budget appropriation control, in-year allotment/warrant control, fund
control (e.g., the general revenue fund of the government [e.g., Consolidated Fund] and
other special funds), management control and other fiduciary controls.
54
2.
Accountability. In a typical PFM system, the executive is held accountable to parliament
and the public at large. Also the managers of individual government agencies are internally
held accountable in terms of their legal mandate/responsibility. This is achieved, among
other things, by tracking the transactions that are specific to each administrative entity the
accountability of which needs to be enforced through appropriate audit trails. The COA
configuration needs to respond to these accountability requirements.
3.
Budget management. The budget classifications define the structure of the COA codes/subcodes that are related to government budgetary revenue and expenditure operations.
4.
Financial planning and management. This includes financial planning, cash management,
and asset and liability management. From the perspective of COA design, it is important to
know: (i) how the assets and liabilities should be categorized; and (ii) at what aggregated
level the cash and other liquid assets should be monitored.
5.
Management information Individual line agencies require information in greater detail and
frequency for the preparation of various reports to support detailed cost
monitoring,
internal control and day-to-day decision making. As some of these information/reports
could be specific to the line agency concerned, it may not be necessary to track such
information for the whole of government through a generalized COA. However, individual
line agencies/accounting units could track such information by using their own detailed
accounts codes as long as these are
linked to higher level codes which are used for
consolidation of accounting/financial data across the whole reporting entity.
6.
General purpose financial reporting. This includes the preparation of financial statements
and reports in accordance with national and/or international accounting standards. When
general purpose financial reports meet this objective, they will also be a means—in
addition to budget reporting—by which managers of public resources discharge their
accountability to those users.
Self-Assessment Exercise.
1. Explain any Five (5) objectives of a chart of accounts.
3.3.
Principles and Factors for the Design of a COA
The following principles are required for an effective development, implementation and
maintenance of a COA. Cooper and Pattanayak (20011) identified the following principles and
factors for the design of a chart of accounts.
1.
Comprehensiveness. The COA should be comprehensive enough to capture all the /relevant
information and it needs to reflect not only the budget framework but also the accounting
55
framework. The budget classifications should not be different and should be embedded in
(or harmonized with) the government’s accounting classifications.
2.
Adequate granularity. The segments and sub-segments of the COA should be designed to
facilitate many possible combinations of data elements necessary for control and reporting
purposes. Each segment should have sufficient detail to meet all control, accountability,
management, and reporting needs of various stakeholders.
3
Mutual exclusiveness. The COA segments and their attributes should be defined in a way
to make them mutually exclusive and avoid confusion in transaction recording and
reporting.
4.
Avoiding redundancy. There is no need for an independent segment in the COA if the
related information could be derived from another segment. Where there are multiple
classifications, it is useful to explore the relationships between those classifications.
5.
Internal consistency. The logic applied in designing the hierarchical structure of COA
segments should be internally consistent. Using a consistent numbering system and
structure helps make the chart user friendly and reduces the chance of coding errors.
6.
Unified framework. Sometimes individual accounting units are allowed certain flexibility
in developing their own specific accounting codes at a more detailed level to capture/record
specific information, e.g., through subsidiary ledgers, for internal management and control
of their units. However, the COA
framework should be unified to ensure that at least
the information at the aggregated level uses the same accounting classification to ensure
consistency
7
between the two sets of accounting data.
Scalability. The COA should allow flexibility for future additions and changes as far as
possible. It should provide for capturing additional information in future, particularly
when such information has been anticipated/identified as part of an ongoing PFM reform
program. Providing room for growth, change and future reporting requirements can help
ensure a COA remains relevant for a long
period of time as the business environment,
regulatory requirements and reporting needs evolve.
8.
Institutional framework for financial transaction processing and accounting. A key issue to
consider is whether the transaction processing system is centralized or decentralized. Even
under a centralized payment system (i.e., expenditure payments to beneficiaries/suppliers
are made by a centralized unit in the ministry of finance/treasury), individual budget units
are usually responsible for authorization of commitments and issuance of payment orders.
There is thus a need to ensure that the recording/accounting at the commitment and
payment order stages are well integrated with the financial accounting at the payment stage
56
to ensure a seamless tracking of transactions covering the full budget execution cycle. This
aspect needs to be taken into consideration while configuring the COA and designing the
Integrated Financial Management Information System (IFMIS).
Self- Assessment Exercise.
1. What are the required principles or factors to be considered before designing a chart of
accounts?
3.4
NATIONAL CHARTS OF ACCOUNTS AND UNIFORM REPORTING
IN
NIGERIA
3.4.1 Introduction
To successfully draw up the process for the adoption of IPSAS, the Federation Account
Allocation Committee (FAAC) at its meeting of the 13th June, 2011 set up a Technical SubCommittee on Roadmap for the Adoption of IPSAS in Nigeria. In order to achieve the objectives
of uniform reporting system; the Technical Sub-Committee developed a comprehensive and
standardized National Chart of Accounts (NCOA). The NCOA is to be used by the three tiers of
Government in Nigeria for budgeting, accounting and financial reporting effective from 2014
financial year. In addition, the NCOA is for both IPSAS Cash and Accrual Basis.
The Federation Account Allocation Committee (FAAC) held a meeting of 13th June,
2011 and set up a Technical Sub-Committee to provide a roadmap for the implementation
of IPSAS among the three tiers of Government in Nigeria. The Technical Sub -Committee
developed a comprehensive and standardized NCOA. The Committee also put together a
harmonized format for both Cash and Accrual Basis of Accounting. This NCOA is an
integrated budget and accounting classification system which has been prepared primarily
for the implementation of the uniform accounting system that is IPSAS compliant. The
NCOA therefore provides the platform for budgeting, accounting and reporting of all
Government financial transactions in the three tiers of Government in Nigeria.
According to FAAC (2013), the NCOA is to be used by all tiers of Government in Nigeria. The
NCOA is applicable to all Ministries, Departments, Agencies, Parastatals, and other government
funded creations/organizations as provided in the NCOA.
3.4.2 DEFINITION OFTHECHART OF ACCOUNTS (COA)
According to FAAC (2013), the Chart of Accounts is a systematic list of the Accounts
used by an entity to define each class of items for which money or the equivalent is spent
57
or received. It may also be further defined as a complete list of budget and accounting
items where each item is uniquely represented by a code and grouped into tables of
related data for the purposes of tracking, managing and reporting budgetary and accounting
items in an orderly, efficient and transparent manner. This list of unique codes can be represented
by numeric, alphabetic, or alpha-numeric symbols. It enhances the ability of the entity to define
each item of revenue, expenditure, asset, liability, location and other parameters in order to give
interested parties a better understanding of the financial transactions of the entity.
3.4.3 PURPOSE OF THE NATONALCHART OF ACCOUNTS
Prior to the development of the NCOA in 2013, the three tiers of government in Nigeria had
different structures of COA consisting majorly of two parameters: Administrative and Economic
Segments. This makes comparison of financial and other reports among the tiers of government
difficult. The Primary Objective of the NCOA according to FAAC (2013), is to:
1.
Facilitate the preparation of uniform financial statements - That is, statements
that may
be reliably compared to those of other entities. Because of this aim, it is especially important that
transactions are entered in a consistent manner;.
2
To fulfill statutory requirements for the presentation of the GPFS;
3.
To enhance the classification of financial transactions leading to meaningful and relevant
accounting reports for users;
4.
To provide a listing of different accounts used by the Government entity
according
to
their intended purpose; and
5.
To comply with the provisions of IPSAS in ensuring full disclosure of all accounting
transactions.
3.4.4
FEATURES OF NCOA
The following are the key features of the NCOA according to FAAC (2013):
1.
Expandable/Flexible/Adaptable - The NCOA is designed to accommodate additions,
modifications and update;
2.
Each item has a unique code;
3.
Sufficient structure for fiscal management to cater for Administrative, Economic,
Functional, Programme, Fund Source, and Geo Code Segment;
4.
Used for both Budgeting and Accounting;
58
5.
It facilitates Data Entry;
6.
It is IPSAS Cash and Accrual Basis compliant;
7.
It is Government Financial Statistics (GFS) 2001 compliant;
8.
It is compliant with Classification of Functions of Government (COFOG);
9.
Multidimensional in Structure - It is a six (6) way classification system
consisting of the
Administrative, Economic, Functional, Programme, Fund and Geographical - Codes
Segments;
10.
Fully Mapped into the Financial Statements - It ensures that in inputting
accounting
transactions as per the classification system, there are directly mapped into the relevant
Financial Statements;
11.
Follows the REAL Model of Economic Classification - The REAL model which represents
Revenue, Expenditure, Asset and liability are systematically followed in the structure of the
CO A to enhance the capturing of related accounting transactions in the same segment.
3.4.5 USERS OF THE NCOA
According to FAAC (2013), the NCOA is document that is to be used by wide range of Users such
as:
1.
Finance/Accounts Officers-Daily Posting of Transactions; Budget /Planning OfficersPreparation and Evaluation of Budgets;
2.
Management;
3.
Analyst/Consultants/Researchers/Experts;
4.
Academia;
5.
Programmers/Software Developers;
6.
Legislators and other Political leaders;
7.
Donors and other development partners;
8.
Mass Media;
9.
The General Public.
Self- Assessment Exercise.
1.
List the various users of NCOA.
3.4.6 STRUCTURE OF THE NCOA
The NCOA is made up of Six (6) Segments with fifty Two (52) Digits. The Structure of each
segment is outlined in below:
59
Figure 1: Structure of the NCOA
A.
ADMINISTRATIVE SEGMENT
This Segment identifies the entity that is and accountable for performing or delivering the service
assigned to it by the Government. The entity may be a Ministry, Department, or an Agency that is
funded by the Government. It identifies the revenue and cost centre. It addresses the "Who"
clement of each transaction. The Administrative Segment is divided into 5 Parts of 12 Digits as
show in table 1.
60
Table 1: Structure of the Administrative Segment
S/NO
1
2
3
4
5
Part
Sector
Organization
Sub-Organization
Sub-SubOrganization
Sub-Sub-Sub-
Digit Description
2
A set of broad Government
performing related activities.
2
Ministries/Departments in case of LGCs
3
Main Ministries, Departments, Parastatals &
Agencies
3
Headquarters of MDA & Outstation Offices
2
entities
Departments within an Entity e.g. Finance &
Accounts. NB: Efforts are being made to
standardize Departmental Codes. For now two
zeros (00) have been assigned.
Organization
Total Number of
12
The entire 12 Digits must be used for all
Digits
transactions.
There are five administrative sectors in Nigeria as shown in Table 2 below. Each Sector has MDA
under it.
61
Table 2: The Five Sectors in Nigeria
1.
S/No
Sector
Digit
Code
1
Administration
2
01
2
Economic
2
02
3
Law and Justice
2
03
4
Regional
2
04
5
Social
2
05
Administration Sector
i.
Presidency/Governor/Chairman
ii.
National/State Assembly/LGC
iii.
Federal Ministry of Defense
iv.
Federal Ministry of Foreign Affairs
v.
Ministry of Information & Communication
vi.
Federal Ministry of Interior or Internal Affairs
vii.
Head of Services of the Federation/ State/Director, Personnel
viii.
Office of Auditor General for the Federation/State/ Local Government
ix.
Public Complain Commission
x.
Civil Service Commission (Federal /State/ LGC
xi.
Federal/State Independent Electoral Commission (INEC)
xii.
Federal Character Commission
2.
Economic Sector
i.
Ministry of Agriculture
ii.
Ministry of Finance
iii.
Ministry of Trade and Investment
iv.
Ministry of Labour & Productivity
v.
Ministry of Science & Technology
vi.
Ministry of Transport
62
vii.
Ministry of Aviation
viii.
Ministry of Power & Energy
ix.
Ministry of Petroleum
x.
Ministry of Mines & Steel Development
xi.
Ministry of Works
xii.
Ministry of Tourism, Culture & Orientation
xiii.
Planning Commission
xiv.
National Salaries, Income & Wages Commission
xv.
Revenue Mobilization, Allocation & Fiscal Commission
xvi.
Fiscal Responsibility Commission
xvii.
Ministry of Water Resources
xviii.
Ministry of Housing & Urban Development
xix.
National Bureau of Statistics
3.
Law & Justice Sector
i.
Judicial Council
ii.
Ministry of Justice
iii.
Independent Corrupt Practice and Related Offences Commission
iv.
Code of Conduct Bureau
4.
Regional Sector
i.
Capital Development Authority
ii.
Federal Ministry of Niger Delta
iii.
Niger Delta Development Commission
5.
Social Sector
i.
Ministry of Youth Development
ii.
Ministry of Women Affairs
iii.
Ministry of Education
iv.
Ministry of Health
v.
Ministry of Environment
vi.
National Sports Commission/Ministry of Sport
vii.
National Population Commission
63
Departments at the LGCs are the equivalent o| Ministries at both Federal and State
levels, where it is applicable. Table 3 shows illustration of the Administration sector
using the Office of the Secretary to the Government. The first part identifies the sector
where the transaction takes place. The first 01 indicates that the sector is the
Administrative Sector. The second part is the organization within the Administrative
Sector which is the Governor’s office and is coded as 11. The next one is the sub Organization which is the Office of the SSG and is coded as 013. The next is to locate
the sub-sub- organization where the officer is located. In this case the it is the
headquarter of the SSG’s office and the code is001. The last part of the code is the sub sub-sub-Organization. This can be a department based on function such as the finance
department. When combined together, we have the complete code of 011101300100. TH
same steps are followed in writing any complete code under the NCOA.
Table 3: Illustration of the Administration Sector using Office of the Secretary to the
Government (OSG)
Sector Organization
Sub-
Sub-Sub-Org
Org
01
11
013
Sub-Sub-Sub-
Complete
Org
Code
001
00
0111013001
00
Social Presidency/Govern
OSG
OSG HQ
Dept.
Refer to the
or/Chairman's
Office
B.
ECONOMIC SEGMENT
This segment identifies the Type (Nature or Object) of an account reporting of financial
transactions. The segment answers the "What” question of every transaction. An 8- Digit
numerical code is assigned as follows:
1.
Account Type (1 Digit) - Maps all transactions into Revenue, Expenditure, Asset, Liability
(REAL).
2.
Sub Account Type (1 Digit) - Details the Account Type and maps it the various
Financial Statements and provides a summary of transactions.
64
3.
Account Class (2 Digits) - Breaks down the Sub Account Type in group of related items
and serves as a note to the Financial Statements.
4.
Sub Account Class (2 Digits) - Breaks the Account Class down into n details and serves as
another level of notes to the Financial Statements
5.
Line Items (2 Digits) - The lowest detail/specific of every transaction budget item. This is
used to generate a detailed transaction/budget list.
Sub
Account
Accounts
Sub Account
Account
Type
Total
Line Item
Class
Class
2
2
Digit
Type
1
1
Account Type
2
8
Code
Revenue
1
Expenditure
2
Asset
3
Iability
4
FUNCTIONAL SEGMENT
1. Functional classification categorizes expenditure according to the purposes and objectives for
which they are intended.
2. Functional Classification or Classification by Functions of Government (COFOG) is
defined as a detailed classification of the functions, or socio economic objectives,
that general government units aim to achieve through various kinds of outlays.
3. A "Functional" classification organizes government activities according to their
broad objectives or purposes (for example, education, social security, housing, etc.).
4. Government expenditure measured according to internationally recognised functional
classification. A functional classification is especially useful in analysing the allocation of
resources among sectors.
65
5. Functions and Sub functions are either assigned at the point of planning and budgeting for
every transaction or at initial set up.
The Functional Segment is made up of 5 digits as in table 14 below:
Table 14: Structure of Functional Segment
(Refer to the NCOA pages 71 to 80)
Part
Main F unction or
Code
3
Division
Description
Represents b road objectives of
Government e.g. General Public
services, Health, Social Protection etc
Function or Groups
1
Details the means by which the broad
Objectives are achieved e .g. Public
Health Services, Secondary Education,
Tertiary Education etc
Secondary Function or
1
Details
functions
the
or
means
by
Groups
which
are
the
achieved
e.g.Junior Secondary Education, Senior
Secondary Education etc
Total No. of Digits
5
Digits
Generally, Functional Segment can be categorized into ten (10 ) Main of
Government, thus:
66
i.
General Public Services
ii.
Defence
iii.
Public Order & Safety
iv.
Economic Affairs
v.
Environmental Protection
vi.
Housing and Community Amenities
vii.
Health
viii.
Recreation, Culture And Religion
ix.
Education
X.
Social Protection
Table 15: Illustration of Functional Segment using Executive and Legisla Organs
S/N
Part
o
No. of
Code
Description
Digit
1
Main
3
701
1
1
General Public Services
Function
2
Group
Executive & Legislative Organs, Fir &
Fiscal Affairs, External Affairs
3
Class
1
Total No. of
5
Digits
2.5
Digits
1
Executive & Legislative Organs
Complete Code for Executive & Legislative Org;
70111
PROGRAMME SEGMENT
Programme Segment answers the "Why" question of every transaction according to the Purpose or
objective. Does the transaction relate to a specific project and if so, what type of activity?
67
The Programme Segment has a total of 14 digits as shown in table 16.
S/N Part
No. of
Description
Digit
1
Policy
2
A deliberate plan of action to guide decisions and achieve
rational outcomes e.g. Education Policy, Health Policy,
Economic Policy.
2
Programme 2
A long -term outline of a government function that is
designed to meet specific policy objectives of the
government e.g. Poverty Alleviation, Housing & Urban
Development
3
Project
6
Programmes are further broken down into projects.
Budgeting and Accounting are carried out along project
lines e.g. Development of Farm Settlements, Improvement
in General Change, Fight Against Corruption.
4
Objective
2
Represent the specific result desired within a fixed period
of time e.g. Increase in Farm Production, Improvement in
General Behaviour, Minimize the incidence of Corruption.
5
Activity
2
Planned set of interrelated tasks to be executed over a fixed
period and within certain cost and other limitations e.g.
Purchase of Fertilizer, Reward for Good Conduct, and
Sensitization of the Public against Corruption.
Total
14
See pages 81 to 93 of the NCOA.
68
Table 18: Illustration of Programme Segment Using Purchase of Fertilizer
S/No
Part
No. of Digit
Code
Description
1
Policy
2
00
Policy Codes are yet to be drawn up
2
Programme
2
01
Economic Empowerment Through
Agriculture (General)
3
Project
6
000001 Development of Farm Settlement
4
Objective
2
01
Increase in Farm Production
5
Activity
2
01
Purchase of Fertilizer
Total Digits
14 Digits
Complete Code for Purchase of Fertilizer is
00010000010101
Table 19: Illustration of Fund Segment Using Budgetary Allocation
Main
Sub- Fund
Fund
02
CRF
Fund
Total No. of Digit
Sources
1
01
Main Envelop Budget
Complete Code for Budgetary Allocation is
002101
2.7 GEOGRAPHIC CODE SEGMENT
The Geographic Code Segment addresses the "Where" (location/station) element of every
transaction. It is for location or physical existence of transaction so that an analysis of government
budget and expenditure along the various Geo Political Zones, States, LGC and Council Wards in
the country can be done.
The use of Geo Codes will make it easier for agencies with oversight function with monitoring and
evaluation (M&E) mandates to locate projects across the country. This is particularly important
when considering Capital Expenditure.
STRUCTURE OF GEOGRAPHIC CODE SEGMENT
The Geographic Code Segment addresses the "Where" (location/station) element of every
transaction. It is for location or physical existence of transaction so that an analysis of
69
government budget and expenditure along the various Geo Political Zones, States, and Local
Government Councils in the country can be done.
The Geo code segment is made up of 8 Digits as shown in table 20.
ILLUSTRATION OFTHE CODES USING ALLTHE SIX SEGMENTS Figure 3:
Linking of a Transaction to the various Segments
Fund
Administrative
Geographical
location
TRANSACTION
Programmme
Function
Economic
Source: FAAC (2013) National carts of accounts- Users’ manual, p21.
Type of Transaction is Purchase of Power Generating Set by Federal Government Girls
College (FGCC), Gboko being financed by the World Bank.
Table 22: Administrative Segment - Federal Government Girls College, Gboko
Sector
Organization
Sub-Org.
Sub-Sub- Sub-SubOrg.
05
17
026
Sub-Org
056
00
Complete Code
00
for
Social
Federal Min. of Federal Unity
FGGC,
Sector
Education
Gboko
Schools
Total Digit
FGGC, Gboko is
051702605600
70
Table 23.1: Economic Segment (NCOA Cash Basis)
- Purchase of Power Generating Set
Account
Sub-
Account
Sub-
Type
Account
Class
Account
Type
2
Total I
19
Complete
Class
3
Expenditure
Budget Line
01
01
Capital
Fixed
Purchased of Fixed Purchase of Power
Code for purchase of
Expenditure
Assets
Assets – General
power generator
Generating Set
Purcchase Power
Purchased
Generating
Set is
23010305
Table 24: Functional Segment - Upper Secondary Education
Main
Group
Class
Total Digit
Function
709
2
Education
2
Complete Code for
Secondary
Upper Secondary
Upper Secondary Education
Education
Education
70922
Table 25: Programme Segment - Purchase of Power Generating Set
Policy
Programme
Project
Objective
Budget Line
00
14
000001
01
04
NIL
Power
Sustainable
Increase Access Purchase of
for Purchase of
Generation &
Power
to
Power
Supply
supply
Electricity Power
Distribution
(General)
71
Total Digit
Complete Code
Generating Set Generating Set
00140000010104
is
Table 26: Fund Segment - World Bank Trust Fund
Main Fund
Sub-Fund
Fund Sources
Total Digit
08
1
21
Complete Code for
World Bank Trust
Aid &
Multilateral Aid &
World Bank Trust
Grants
Grants
Fund
Fund is 08121
Table 27: Geographical Segment - Gboko
Zone
State
Senatorial Zone
LGC
Ward
Total No. of Digit
1
07
2
05
00
Complete Code for
North
Benue
Zone B
Gboko
Gboko LGC is 10720500
Central
In a nutshell, the Code for Rehabilitation of Classroom at FGGC, Gboko using Funds from World
Bank therefore is in table 27,
Figure The entire 6 gegments populated with codes at a glance
Administrative
051702605600
Economic
23010119 or 32010305
Functional
70922
Progamme
00140000010104
Fund
Geo Code
08121
10720500
72
Users are to note that appropriate software/automated system is encouraged to enhance the
application of the NCOA to be seamlessly done thus removing the need to mentally
memorize/recite these codes as transactions are classified. Budgeting with NCOA will be treated
under the unit on budgeting.
4.0
SUMMARY
In this unit, the chart of accounts were discussed. It was noted that the concept of Chart of
Accounts (COA) is well known in the private sector and that it is only recently that governments
started to apply the same accounting principles and processes commonly used by the private sector
in financial management. COA is a well-functioning Performance Management (PFM) framework
that includes an effective accounting and financial reporting system to support fiscal policy
analysis and budget management.
The objectives of a chart of account are for purposes of : (1) Control, (2), accountability, (3)
Budget management,(4) Financial planning and management.; (5) Management information (5),
and (6) General purpose financial reporting.
The Principles and Factors for the Design of a COA was also discussed. These principles are: (1)
Comprehensiveness; (2);Adequate granularity; (3) Mutual exclusiveness; (4) Avoiding
redundancy; (5) Internal consistency; (6) Unified framework; (7)Scalability; (8)
Institutional
framework for financial transaction processing and accounting.
5.0 CONCLUSION
The unit discussed the National charts of accounts and uniform reporting in Nigeria which was
developed by FAAC in 2013. The NCOA is to be used by the three tiers of Government in
Nigeria for budgeting, accounting and financial reporting effective from 2014 financial year. In
addition, the NCOA is for both IPSAS Cash and Accrual Basis. The features, users and structured
of NCOA were also discussed exhaustively in this unit.
6.0
TUTOR MARKED ASSIGNMENT
1.
What do you understand by chart of accounts?
2.
What is the purpose of the Nigerian National Chart of Accounts?
3.
Explain the basic features of the NCOA
73
7.0
FURTHER READING/REFERENCES
Cooper, J & Pattanayak, S((20011) Chart of accounts: A critical element of the Public Financial
Management framework, Washington, D.C.:
International Monetary Fund Federation Accounts Allocation Committee (2013) National charts of
accounts: Users manual, Abuja: FAAC
Ogiedu, K.O. (2016) Lecture notes on Public Sector Accounting and Finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government Accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
74
UNIT 5:
FUND ACCOUNTING
CONTENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Funds and Funds Accounts Definitions
3.2
General classification of funds
3.3
Government funds
3.4
3.5
3.6
3.3.1
General Fund
3.3.2
Special Revenue Funds
3.3.3
Capital Project Fund
3.3.4
Debt Service Fund
3.3.5
Permanent Funds
Proprietary funds
3.4.1
Enterprise Funds
3.4.2
Internal Service Funds
Fiduciary funds
3.5.1
Agency funds
3.5.2
Pension (and other employee benefit) trust funds
3.5.3
Investment Trust Fund
3.5.4
Private-purpose trust funds
Types of funds in Nigeria
3.6.1
Consolidated revenue fund
3.6.2
The Contingency Fund.
3.6.3
Contingency Reserve Fund.
3.6.4
Internally Generated Funds:
3.6.5
Capital Project Fund
3.6.6
National Loans Fund. .
3.6.7
Trust and Agency Fund.
3.6.8
Debt Service Fund/Sinking Fund.
3.6.9
Consolidated Fund.
3.6.10 Counterpart Fund
3.6.11 Intra-governmental Service Fund.
75
3.6.12 Revolving Fund
3.6.13 Local Government Fund
3.7
Advantages of fund accounting
3.8
Disadvantages of fund accounting
3.9
General Accounting entries in fund accounting
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0
INTRODUCTION
In this unit, you will be introduced to the concepts of funds and funds accounting. You will learn
the General classification of funds and the various types Government funds. Specifically, you will
learn about the types of funds in Nigeria. Furthermore, will learn the advantages and disadvantages
of funds accounting.
2.0
OBJECTIVES
At the end of the unit the student should be able to understand the following:
1.
The concepts of funds and funds accounting
2
The General classification of funds
3
Types of Government funds
4
Types of Proprietary funds
5.
Types of Fiduciary funds
6
Types of funds in Nigeria
7
Advantages and disadvantages of fund accounting
8
General Accounting entries in fund accounting
3.0
MAIN CONTENT
3,1
FUNDS AND ACCOUNTS DEFINITIONS
Funds accounting is one of the basic principles of public sector accounting. Public sector
accounting systems are organized and operated on a fund basis. A fund is the basic unit used to
segregate resources and expenditures in the state treasury. A fund is a fiscal and accounting entity
with a self-balancing set of accounts recording cash and other financial resources, together with all
related liabilities and residual equities or balances, and changes therein, which are segregated for
76
the purpose of carrying on specific activities or attaining certain objectives in accordance with
special regulations, restrictions limitations.
There are other related entities that have some of the same characteristics as a fund but do not fully
meet the definition. The general purpose of these entities is to segregate resources and restrict
expenditures to clearly identifiable purposes. These entities include a number of specifically
defined accounts, reserves, and dedicated revenues with related restricted expenditures. In each
case, revenue is dedicated or appropriated, spending is restricted and any balance remains in the
account and does not cancel to the general or other fund.
As stated above, a fund is a separate accounting and financial reporting entity. It is a selfbalancing set of accounts. In other words, a fund's assets will equal the total of its liabilities and its
fund balance (or net assets), in the same way that financial statements for a legal entity work. This
does not , however, mean that funds are always separate legal entities. It should be noted here that
a fund is not the equivalent of a bank account. The fund will have various assets and liabilities,
with the difference between the assets and liabilities being called fund balance. The fund balance
does not necessarily represent "cash" that can be spent. Not all of the assets will be in the form of
cash, so it cannot be expected that the fund balance is the equivalent of the balance of cash in a
bank account.
There is no limit to the number of funds that can be established by a government or an arm or unit
of government. The general rule is that the number of funds should be as few as possible. Only
those funds required by law and sound financial administration should be established and
maintained by the government.
Unnecessary funds could results in inflexibility, undue
complexity, and inefficient financial administration.
Generally, a fund should be created or continue to exist when a majority of the following
criteria apply:
1.
When either the revenues or expenditures of the activity are sufficiently large.
2.
When the activities create assets or liabilities that will continue beyond a normal budget
cycles.
3.
If multiple agencies will be involved in the collection or use of the fund’s resources.
4.
If there are enough resources available to cash flow the activity when the program begins
operating.
5.
If a separate fund is necessary to comply with constitutional requirements, government
regulatory requirements, or generally accepted accounting principles.
77
Self- Assessment Exercise
1.
What is a “Fund” in Public sector Organizations?
3.2
GENERAL CLASSIFICATION OF FUNDS
Funds are generally classified into three broad categories: (i) Government funds, (ii) Proprietary
funds, and (iii) fiduciary funds. Each of these funds groups has sub-funds category as follows:
(A)
(B)
(B)
3.3
Governmental Funds
(1)
General fund
(2)
Special revenue funds
(3)
Debt service funds
(4)
Capital project funds
(5)
Permanent funds
Proprietary Funds
(1)
Enterprise funds
(2)
Internal service funds
Fiduciary Funds
(1)
Trust funds (Pension and other employee Benefit)
(2)
Investment Funds
(3)
Private purpose Funds
(4)
Agency Funds
GOVERNMENT FUNDS
The governmental funds account for the activities of the government that are not regarded as
proprietary (business-type) or fiduciary. These activities are sometimes referred to as the general
governmental activities. Governmental funds use the modified accrual basis of accounting and
the current financial resources measurement focus. We shall now discuss the different types of
governmental funds.
3.3.1 General Fund
The general fund is the main operating fund of a government. Generally accepted accounting
principles permit a government to have only one general fund. The general fund is a catch all
fund. It accounts for all current financial resources of a government except for those current
financial resources that are accounted for in another fund. Often when governments talk about
78
"balancing their budget," what they really mean is that they are balancing the budget of their
general fund. Many times when it is said that a government is over budget or has a deficit, the
meaning is not for the government as a whole, but for the government's general fund, since this is
usually considered the main operating fund of a government.
The balance sheet of the general fund will include those current financial resources related to
transactions that will be accounted for in the general fund. Usually the asset side of the balance
sheet consists of cash, investments, receivables, and inventories.
In Nigeria, the general fund of the Federal Government is the Consolidated Fund. It is the Fund
that holds all forms of monies that belong to the Federal Government except revenue and other
moneys: (i) payable by or under an Act of Parliament into some other Fund established for a
specific purpose (i.e. Contingency Fund, Road Fund, etc; or (ii) that may, under an Act of
Parliament, be retained by the department or agency of Government that received them for the
purpose of defraying the expenses of that department or agency.
In Nigeria, Section 120 of the 1999 Federal Constitution specifies the Consolidated Revenue
Fund as the main Fund of the Federal Government into which all revenues generated for the
State should be paid into, and out of which all legally authorised expenditures should be paid
from.
3.3.2 Special Revenue Funds
These types of funds are used to account for the proceeds of specific revenue sources that are
committed to be used for specific purposes other than capital projects and debt service. The
creation and use of special revenue funds is optional unless there is a legal requirement of the
government that a special revenue fund be created. The fact that a certain revenue must be used
for a specific purpose does not mean that this revenue and the related expenditure cannot be
accounted for in the government's general fund. Generally accepted accounting principles for
governments prescribe that a minimum number of funds be used. However, a government may
feel that a special revenue fund improves accountability over compliance with a special revenue
source's requirements. In these cases, the government will set up one or more special revenue
funds to account for these types of resources.
There are two common examples of revenues that are accounted for in special revenue funds. The
first are for grants received from other levels of government, such as a federal or state grant, or
from individuals or foundations that restrict the use of the funds for specific purposes. For
79
example, a city receives a state grant to build a state library in a particular location. A special
revenue fund may be established to account for the revenue received from the state and the
expenditures related to building the library.
Another example of where special revenue funds are used is where the proceeds from specific
taxes are restricted for certain purposes. For example, a state may impose an education tax, the
proceeds from which are required to be used for the development of university education.
3.3.3 Capital Project Fund
This fund is established into which moneys are accumulated to undertake projects or for the
acquisition of capital assets. Capital Projects Funds are used to account for the development of
capital facilities other than those financed by special assessments or the operations of an Enterprise
Fund. In many cases, the use of Capital Projects Funds is optional.
Most governments use capital projects funds to account for the acquisition and/or construction of
capital assets. Sometimes the amount of money that flow through the capital projects fund might
overshadow the general governmental activities reported in the general fund. The only instance
where GAAP requires that a government use a capital projects fund is where capital grants or
shared revenues are restricted for capital acquisition or construction.
Once a government determines that it desires to establish a capital projects fund (or is required by
GAAP to establish one), the government then needs to decide how many capital projects funds
will be established. A government may determine that it can adequately account for and manage
its capital projects with one capital projects fund. However, a government may decide that
establishing a number of capital projects funds will better serve its accountability and financial
management needs.
3.3.4 Debt Service Fund
Debt service funds are a type of governmental fund that is used to account for resources that are
restricted, committed or assigned for debt service. Debt service fund is kept as alternative to Loans
Fund, where the policy of the government is to keep any loan contracted in the Consolidated Fund.
The Fund is for the service of both the principal and interest payments hence transfers into this are
purely moneys from the Consolidated Fund necessary for the principal and interests payments.
The government should determine whether it has a legal obligation to establish debt service funds.
If it is not, the government should then decide whether it would be useful from a managerial
80
perspective to establish such a fund or funds. From a practical perspective, most governments that
have long-term debt outstanding do use debt service funds. Where resources are being
accumulated for principal and interest maturing in future years, those financial resources should be
reported in a debt service fund.
3.3.5 Permanent Funds
Permanent funds are used to report resources that are legally restricted to the extent that only the
earnings, and not the principal, may be used for purposes that support the government's programs,
meaning programs that are for the benefit of the government or its citizens. Permanent funds
operate in a manner similar to endowments, where the investment earnings, and not the principal,
can be spent. Note that the earnings of a permanent fund are used to support the government's
activities.
3.4
PROPRIETARY FUNDS
Proprietary funds are used to account for a government's ongoing organizations and activities that
are similar to those found in the private sector. These activities resemble commercial activities
performed by governments, and the basis of accounting and measurement focus of these funds
reflect this resemblance. There are two types of proprietary funds: enterprise funds and internal
service funds. Proprietary funds use the accrual basis of accounting and the economic resources
measurement focus. Proprietary funds recognize revenues when they are earned and recognize
expenses when a liability is incurred
This means that the balance sheets of proprietary funds will reflect both current and noncurrent
assets and liabilities. In other words, capital assets (such as infrastructure, buildings, equipment,
etc.) are recorded as assets by the fund. In addition, debt issued related to the activities of the
proprietary fund is recorded as a liability on the balance sheet of the proprietary fund. (Keep in
mind that the assets and liabilities of the proprietary funds are also included in the assets and
liabilities of the government-wide statement of net assets.) In addition to recording noncurrent
assets and liabilities, which is basically a result of their measurement focus, proprietary funds also
recognize revenues and expense on the accrual basis of accounting, which means that revenues
and expenses are recorded in different accounting periods than they would be by governmental
funds.
3.4.1 Enterprise Funds
Enterprise funds are used to account for operations that fall within two basic categories:
81
1. Activities that are financed and operated in a manner similar to private business enterprises,
where the intent of the governing body is to finance or recover costs of providing goods or
services to the general public on a continuing basis primarily through user charges
2. Operations where the governing body has decided that periodic determination of revenues
earned, expenses incurred, and/or net income is appropriate for capital maintenance, public
policy, management control, accountability or other purposes
Enterprise funds are primarily used to account for activities that are financed through user charges.
However, the total cost of the activity does not have to be paid for by the user charges. The
government (or other governmental entity) may subsidize a significant portion of the costs of the
enterprise fund. Typical activities accounted for in enterprise funds include those that are similar
to utilities, such as water and sewer funds and electric utility funds. Parking lots operated by
governments are another example of proprietary activities accounted for in a proprietary fund.
3.4.2 Internal Service Funds
Internal service funds are used to account for the financing of goods or services provided by one
department or agency of a governmental unit to other departments or agencies of the same
governmental unit on a cost-reimbursement basis. Because internal service funds use the economic
resources measurement focus and the accrual basis of accounting, they allow the full cost of
providing goods or services to other departments or agencies to be charged to the receiving
department or agency.
As the main purpose of internal service funds is to identify and allocate costs of goods or services
to other departments, it is generally recommended that governments use separate internal service
funds for different activities. Keep in mind, however, the GAAP does not require the use of
internal service funds, nor does it require that the internal service fund include the full cost of
services that are provided. A government may choose to leave some of the related costs out of the
internal service fund, such as a rent charge or a utility charge.
Internal service funds are often used to determine and allocate the costs for a diverse group of
activities, such as
(i)
Duplicating and printing services
(ii)
Motor pools
(iii)
Central garages Information processing
(iv)
Purchasing
82
(v)
Central stores and warehousing
Many of the transactions between internal service funds and other funds take the form of quasiexternal transactions. The funds receiving the goods or services from the internal service fund
report an expenditure or an expense, while the internal service fund reports revenue.
3.5
FIDUCIARY FUNDS
Fiduciary funds are used to report assets held in trustee or agency capacity for others and,
therefore, cannot be used to support the government’s own programs. Fiduciary funds are reported
using the economic resources measurement focus and the accrual basis of accounting, except for
the recognition of certain liabilities of defined benefit pension plans and certain postemployment
healthcare plans.
Trust funds are used to report resources held and administered by the reporting government when
it is acting in a fiduciary capacity for individuals, private organizations or other governments.
Trust funds are distinguished from agency funds generally by the existence of a trust agreement
that affects the degree of management involvement and the length of time that the resources are
held.
3.5.1 AGENCY FUNDS
Agency funds are used to account for assets held solely in a custodial capacity. As a result, assets
in agency funds are always matched by liabilities to the owners of the assets. The accounting and
financial reporting for agency funds are unique and do not really follow those of governmental
funds or proprietary funds. Agency funds use the modified accrual basis of accounting for
purposes of recognizing assets and liabilities, such as receivables and payables. However, agency
funds do not have or report operations, and accordingly are said to not have a measurement focus.
In determining whether an agency fund or a trust fund is used to account for various types of
transactions, there are no clear-cut distinctions for selecting the proper fund to account for a
particular transaction. The degree of the government’s management involvement and discretion
over assets is generally much greater over trust fund assets than over agency fund assets. Privatepurpose trust funds, for example, may require that a government’s management identify eligible
recipients, invest funds long- or short-term, or monitor compliance with regulations. Agency
funds, on the other hand, typically involve only the receipt, temporary investment, and remittance
of assets to their respective owners.
83
Agency funds are often used by school districts to account for student activity funds that are held
by the school district but whose assets legally belong to the students. Another common use of
agency funds is to account for taxes collected by one government on behalf of other governments.
The collecting government has virtually no discretion on how the funds in the agency fund are to
be spent. They are simply collected and then remitted to the government on whose behalf they
were collected. In addition to this example, there are three instances where the use of an agency
fund is mandated.
3.5.2 PENSION (AND OTHER EMPLOYEE BENEFIT) TRUST FUNDS
Pension (and Other Employee Benefit) Trust Funds are used to report resources that are required
to be held in trust for the members and beneficiaries of defined benefit pension plans, defined
contribution plans, or other employee benefit plans. Governments almost always offer pension
benefits to their employees. The pension plans related to these benefits are reported as pension
trust funds in the government’s financial statements if either of the following criteria is met:
(i)
The pension plan qualifies as a component unit of the government.
(ii)
The pension plan does not qualify as a component unit of the government, but
the
plan’s assets are administered by the government.
Pension (and Other Employee Benefit) Trust Funds, is used to account for other employee benefit
funds held in trust by a government. Pensions (and other employee benefit) trust funds use the flow
of economic resources measurement focus and the full accrual basis of accounting, similar to
nonexpendable trust funds and proprietary funds. A separate pension (and other employee benefit)
trusts fund should be used for each separate plan. Separate pension (and other employee benefit)
trust funds are also sometimes established to account for supplemental pension benefits.
Governmental pension plans are usually administered by public employee retirement systems.
3.5.3 Investment Trust Fund
Investment Trust Funds should be used to report the external portion of investment pools reported
by the school district. A special type of trust fund, the investment trust fund, is used by
governments that sponsor external investment pools and that provide individual investment
accounts to other legally separate entities that are not part of the same financial reporting entity.
Investment trust funds report transaction balances using the flow of economic resources
measurement focus and the accrual basis of accounting. Accordingly, the accounting and financial
84
reporting for investment trust funds is similar to that used by nonexpendable trust funds (and
proprietary funds).
3.5.4 Private-purpose trust funds
These are used to report all other trust arrangements under which principal and/or income benefits
individuals, private organizations or other governments. They are used to report all trust
arrangements (other than pension and other employee benefit, and investment trust funds), under
which principal and income benefit individuals, private organizations, or other governments.
Similar to other fiduciary funds, private-purpose trust funds cannot be used to support a
government’s own programs. It is important therefore, to make sure that an activity is absent any
public purpose of the government before it is accounted for as a private-purpose trust fund, even if
individuals, private organizations, or other governments receive direct or indirect benefits from the
activity. The distinction that a private-purpose trust fund should not be used to account for a grant
program that supports a government’s own programs is an important one. If a donor provides a
government with a grant for the government to use to support its own programs, that grant should
be recorded in the government’s general fund as grant revenue. The expenditures for this example
program then become subject to the budgetary appropriations of the government’s general fund.
However, if the grant does not directly benefit the government or go to support its own programs,
then the grant is properly accounted for as a private purpose trust fund. Generally because of their
nature, there are no legal budgetary appropriations for these types of fiduciary funds and the
program is administered essentially only in accordance with the grant agreement.
3.6
TYPES OF FUNDS IN NIGERIA
We have already examined the broad categories of funds. With these broad categories different
types of funds exist. The funds commonly used in Nigeria are summarised below:
3.6.1 Consolidated revenue fund
In Nigeria, Section 120 of the 1999 Federal Constitution specifies the Consolidated Revenue Fund
as the main Fund of the Federal Government into which all revenues generated for the State should
be paid into, and out of which all legally authorised expenditures should be paid from.
3.6.2 The Contingency Fund.
This is the Fund established for any unbudgeted expenditure which comes up as very urgent or
were unforeseen during the budgeting period, for instance for unexpected flood disaster, or
outbreak of some disease in certain part of the Nation. In Nigeria, the setting up of such
Contingency Fund is authorised in Section 123 (1) of the Federal Constitution.
85
3.6.3
Contingency Reserve Fund.
It is that part of the normal approved appropriation which is set aside by the Executive. It is
normally part of the planned expenditure, which is deducted and reserved, with the aim of helping
out any spending Organization in the future to meet any unexpected spending. This reserve is
within the control of the Executive and can help out a spending Organization in the event of the
need for extra funds, and reduce significantly the problem of going through either supplementary
request from the Legislature or the issue of looking for areas for possible virement. This can be a
good way to plan for any unexpected shocks, though its existence can also encourage misuse of
funds especially when the reserve swells over the years and proper guidelines and control for its
use are not affected.
3.6.4
Internally Generated Funds:
This means revenue generated from the activities of a government agency from its operations other
than taxes collected by the Revenue Agencies and includes non-tax revenues.
3.6.5
Capital Project Fund
This fund is established into which moneys are accumulated to undertake projects or for the
acquisition of capital assets. It is also known as the Development Fund.
3.6.6 National Loans Fund.
Where the policy of the government is to keep such separate account, it accounts for the receipts of
loans that are contracted, both foreign and local and the payments of interest on such loans and the
repayments of the principal sums. Transfers are made out of this into consolidated fund to meet
any budget deficits. Monies for the loan liquidation in terms of both principal and interest
payments are also made from the consolidated fund into this account.
3.6.7
Trust and Agency Fund.
This fund is established to hold moneys that the government holds in trust for some institution or
body. Government holds this money as a trustee or an agent to the owner. Example can be moneys
that the government holds from International bodies as rewards to the National armed forces for
International peacekeeping assignment.
3.6.8 Debt Service Fund/Sinking Fund.
This special fund is kept as alternative to Loans Fund, where the policy of the government is to
keep any loan contracted in the debt service fund to ease it’s repayment.
3.6.9 Consolidated Fund.
The Fund is for the service of both the principal and interest payments hence transfers into this are
purely moneys from the Consolidated Fund necessary for the principal and interests payments.
86
Alternative to this is the creation of a Sinking fund into which amount is paid annually for a
specific loan redemption with the annual payment calculated in such a way that the annual
payment (the principal) plus the interest earned which is reinvested will be sufficient for the future
liquidation of the loan.
3.6.10 Counterpart Fund
This is a fund, which is set established by governments and is used to support projects which are
funded by foreign donations. Foreign donations can be made either by cash or at times by goods.
Where donors at times donate goods rather than giving physical cash towards some specific
projects such fund is created for any moneys generated from such goods. The government makes a
contribution in addition to the foreign donations, towards the completion of the project.
3.6.11 Intra-governmental Service Fund.
A fund can be created as a unit with a central function of providing some basic services among
government Organizations or departments to ensure economy and efficiency. A stationery depot
can be established within a government publishing house to supply various departments with their
stationery needs.
3.6.12 Revolving Fund
Such fund is an established fund out of which spending Organizations can borrow monies for
particular project or activity which will be sold later and once sold, the monies generated are paid
back into the fund.
3.6.13 Local Government Fund
This Fund is established specifically for the activities of the local government, to be used by the
local authorities established for the social and economic development of the individual localities
and districts.
3.7
Advantages of fund accounting
1.
It ensures financial control. When a fund is created, the purpose of the fund is expressly
state
and as such money meant for a project can only be used for the project.
2.
It can be used to stress government policy.
3.
It can be used for sympathetic purposes.
4.
It can be used for control purposes.
3.8
Disadvantages of fund accounting
1. There is no provision for debtors and creditors.
3. Assets are not capitalised. They are written off in the year of purchase.
87
4. Effective financial control on all funds may be difficult.
5. It makes consolidation of government accounts difficult.
Self- Assesssment Exercise
1. State three advantages and three disadvantages of fund accounting.
3.9
General Accounting entries in fund accounting
There are different accounting treatments of items in fund accounting system depending on the
type of fund. However, there are general entries which are treated below:
When the fund is created:
1.
Dr.
Bank Account
Cr.
Fund Account
With the proceed realised on creation of fund.
2.
Dr.
Expenditure Account
Cr.
Fund Account
With expenditure from the fund
3.
Dr.
Fund Investment Account
Cr.
Bank Account
With value of investment purchased with fund
4.
Dr.
Fund Investment Disposal Account
Cr.
Fund Investment Account
With the value of investment disposed
5.
Dr.
Book Account
Cr. Fund Investment Disposal Account
With the proceed on disposal of investment
6.
Dr.
Fund Investment Disposal Account
Cr.
Fund Account
With profit realised on disposal of investment
7.
Dr.
Fund Account
Cr.
Fund Investment Disposal Account
With loss on realised on disposal of investment
88
ILLUSTRATION 1
The following balances were found in the Treasury Department of Auchi Republic for the period
ended 31s1 December 2010):
^
(i)
Sales of Government shares
400.000
(ii)
Road construction
600,000
(iii)
Internal loan
350,000
(iv)
External loan
200,000
(v)
Transfer from consolidated Revenue Fund
500,000
vi)
External grant
500.000
(vii)
Engineering infrastructure
4300,000
(viii) Balance brought forward
300,000
(ix)
Water supply -
200,000
(x)
Agriculture -
150,000
Inquired:
SOLUTION TO ILLUSTRATION 1
^
Balance b/f
300,000
Capital receipts (Working 1)
1,450,000
Transfer from C R F
500,000
2.250.000
Less total expenditure
1,250,000
Balance c/f
1,000,000
Workings: Working 1 - Capital receipts
Sales of government shares
400,000
Internal loan
350,000
External loan
200,000
External grant
500,000
89
1,450,000
Working2 - Capital expending
Road construction
600,000
Engineering infrastructure
300,000
Water supply
200,000
Agriculture
150,000
1,250,000
4.0
SUMMARY
In this unit you have learnt about funds and funds accounting in the public sector. Funds
accounting is one of the basic principles of public sector accounting. Public sector accounting
systems are organized and operated on a fund basis.
Funds are generally classified into three broad categories: (i) Government funds, (ii) Proprietary
funds, and (iii) fiduciary funds. Each of these funds groups has sub-funds category as
follows:(A)Governmental Funds subdivided into (1)General fund (2)Special revenue funds,
(3)Debt service funds (4)Capital project funds, (5)Permanent funds; (B) Proprietary Funds
subdivided into (1)Enterprise funds and (2) Internal service funds; and (C)
subdivided into, (1)
Fiduciary Funds
Trust funds (Pension and other employee Benefit), (2) Investment Funds, (3)
Private purpose Funds, and, (4) Agency Funds.
5.0
CONCLUSION
The unit examined the types of funds in Nigeria which include the following among others: (1)
Consolidated revenue fund, (2) the Contingency Fund, (3)
Contingency Reserve Fund, (4)
Internally Generated Funds, (5) Capital Project Fund, (6) National Loans Fund, (7) Trust and
Agency Fund, (8) Debt Service Fund/Sinking Fund, (9)Consolidated Fund, (10) Counterpart
Fund, (11)
Intra-governmental Service Fund.
(12)
Revolving Fund, and (13) Local
Government Fund. You were also introduced to the general accounting entries in fund accounting
90
6.0
TUTOR MARKED ASSIGNMENT
1 Discuss the different types of funds known to you.
7.0
REFERENCES/FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition 3, Lagos:
Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting and
finance, Benin City: Mindex Publishing Company Limited
ICAN (2014).Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
91
UNIT 6
GOVERNMENT ACCOUNTING OFFICERS
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Introduction
3.2
Minister of Finance
3.2.1
3.3
3.4
3.5
Functions of the Minister of Finance
Accountant-General of the Federation
3.3.1
Powers of the Accountant-General of the Federation
3.3.2
Functions of the Accountant-General for the Federation
Auditor-General for the Federation
3.4.1
Power Auditor-General for the Federation
3.4.2
Appointment of Auditor-General for the Federation
3.4.3
Functions of Auditor-General for the Federation
3.4.4
Constitutional functions Auditor-General for the Federation
Accounting Officer
3.5.1
Responsibility of the Accounting Officer
3.5.2
3.6.2
3.5.3
Special Functions of the Accounting Officer under the Public Procurement
The functions of the Accounting Officer
Act 2007
3.6
Sub-Accounting Officer
3.6.1 Functions of the Sub-Accounting Officer
3.7
Sub -Treasurer of the Federation
3.7.1 Functions of the Sub-Treasurer of the Federation
3.8
The Revenue Collector
3.8.1
Functions of the Revenue Collector
3.9
The Federal Pay Officer
3.10
Director of Budget
3.10.1 Functions of the Director of Budget
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3.11
Imprest Holder
3.11.1 Operating an Imprest
3.12
Officer Controlling Expenditure
3.13
Head of Finance and Accounts
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES / FURTHER READING
1.0
INTRODUCTION
In this unit, you will learn about the different finance officers of government and their respective
functions. The key officers in charge of the running and maintenance of the accounting function in
the public sector are discussed in this unit.
2.0
OBJECTIVES
After studying this unit, you should be able to:
1
Identify the finance officers of government
2.
Identify the functions of the various finance officers of government.
3.
Operate an imprest system
3.0
MAIN CONTENT
3.1
INTRODUCTION
We shall begin this unit by looking at financial authorities in the public sector. Financial
authorities are the legal instruments that empower and guide all public officers in carrying out
government transactions The government officials who are responsible for managing government.
The Government Officials who are saddled with the responsibility of managing government funds
and property can be grouped into two categories briefly discussed as follows:
93
(a) The officials who have attained positions by way of experience, hard work, and efficiency and
cannot be arbitrarily removed. Such officers include the Accountant-General of the Federation,
Auditor-General for the Federation, Accounting Officers, Sub-accounting Officers, Federal Pay
Officers, Revenue Collectors and Local Government Secretary.
(b) The officials who occupy positions by way of political dispensations. They may not necessarily
have any experience in the assigned fields. Such officials include Federal Minister of Finance,
State Commissioner for Finance, a Local Government Chairman and Councillors.
In this unit, we shall discuss both classes of officers at the level of the Federal Government.
3.2
MINISTER OF FINANCE
The Minister of Finance is a political office holder who is appointed by the President. His
appointment, like that of other cabinet Ministers, is subject to ratification by the Senate of the
National Assembly. The constitution confers on him the responsibility for the control and
management of public fund of the Federation.
3.2.1 Functions of the Minister of Finance
The functions of the Minister of Finance are:
1. He is responsible for the preparation of annual estimates of revenue and expenditure for the
Federal Government.
2. He is required to formulate all policies related to fiscal matters while the Central Bank of
Nigeria formulates policies relating to monetary matter.
3. The minister is to ensure the mobilisation of both exotic and indigenous financial resources
through both external and internal financial institutions for development purposes.
4. He ensures a favourable balance of payment position required to maintain adequate foreign
exchange services.
5. He manages the value of Nigerian currency both internally and externally.
6. Responsible for the supervision, monitoring and co-ordination of all government revenue
accruing from oil and non-oil resources.
7. He supervises the banking and insurance industry by liaising with their regulatory bodies.
8. He supervise all matters in connection with allocation of revenue to the three tiers of
government i.e. Federal, State and Local Government.
94
9. Relating with relevant International Organizations and Financial Institutions in order to
accelerate development process of Nigerian Financial Institutions. Such Organizations
include:- Economic Communities of West Africa (ECOWAS), United
Nations
National Development (UNND), European Union (EU), African Union (AU)
10. He issues financial warrants without which the Accountant General cannot release funds to
the ministries and extra- ministerial departments.
11. He receives statutory statement of accounts from the Accountant-General of the Federation.
Self- Assessment Exercise.
1. What are the functions of the Minister of Finance?
3.3
ACCOUNTANT-GENERAL OF THE FEDERATION
The definition and duties of the Accountant-General are specified in section 106 and 107 of the
Financial Regulations No. 72 Vol. 96 2009 edition. According to section 106, the AccountantGeneral is the Chief Accounting Officer of the receipts and payments of the government of the
Federation. He is saddled is responsible for the general control, custody and supervision of all
ministries and departments within the Federation. He is responsible for the preparation of the
annual financial statements of accounts of the Nation as may be required by the Minister of
Finance. The Accountant –General is appointed by the President, on the recommendation of the
Federal Civil Service Commission.
3.3.1 Powers of the Accountant-General of the Federation.
(1)
He has power of unlimited access to all financial documents and records of every Ministry
or
Department at all times.
(2)
He has the power to carry out any special investigation, when the need arises, in any
Ministry or Department.
(3)
The Accountant-General has power to demand for and obtain any information and
explanation required to carry out his duties.
3.3.2. FUNCTIONS OF THE ACCOUNTANT-GENERAL OF THE FEDERATION. The
functions of the Accountant-General of the federation contained in sections 106 and 107 of the
Financial Regulations. According to the provisions, he shall:
(1)
Maintain and operate the Federation Account;
(2)
Establish and supervise Federal Pay Offices in each state capital of the federation;
95
(3)
Conduct routine and in-depth inspection of the books of accounts of federal
ministries, extra- ministerial offices and other arms of government to ensure
compliance with
rules, regulations
and
policy
decisions
of
the
federal
government.
(4)
Approve and ensure compliance with accounting codes, internal audit guides and stock
verification manuals of federal ministries, extra-ministerial offices and other arms of
government.
(5)
Investigate cases of fraud, loss of funds, assets and store items and other financial
malpractices in ministries/extra- ministerial offices and other arms of government;
(6)
Provide financial guidelines through the issuance of treasury circulars to federal
ministries/extra-ministerial offices and other arms of government
(7)
Supervise and control the computerization of the accounting system in the federal
ministries, extra- ministerial offices and other arms of government;
(8)
Carry out revenue monitoring and accounting;
(9)
Issue officially approved forms bearing Treasury numbers for use in all federal
ministries, extra-ministerial office and other arms of government to ensure
uniformity;
(10)
Formulate the accounting policy of the federal government;
(11)
Service public debt and loans; and
(12)
Organize training of accounts and internal audit personnel in all federal ministries, extraministerial offices and other arms of government.
Self- Assessment Exercise
a.
List the functions of the Accountant General of the Federation.
3.4 AUDITOR-GENERAL FOR THE FEDERATION
According to section 108 of the Financial Regulation 2009, the Auditor –General is the Officer
responsible under the Constitution of the audit and report on the public accounts of the federation
General: including all persons and bodies established by law entrusted with the collection, receipt,
custody, issue or payment of Federal Public moneys or with the receipt, custody, issue, sale,
transfer or delivery of any stamps, securities, stores or other property of the government of the
federation.
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3.4.1 POWER OF AUDITOR-GENERAL FOR THE FEDERATION
He has the power to examine the accounts in any way he deems fit and at the end of the audit, he is
required to write a formal report detailing whether in his opinion:
(i)
All accounts have been properly kept;
(ii)
All public monies have been fully accounted for,
(iii)
The rules and procedures applied are sufficient to secure an effective check on
the assessment, collection and proper allocation of revenue;
(iv)
Monies have been expended for the purposes they were appropriated and the
expenditure have been made as authorised; and
(iv)
Essential records are maintained and the rules and procedures applied are
sufficient to safeguard and control public property and funds.
3.4.2
Appointment of Auditor-General for the Federation.
According to S86 (1) of the 1999 Constitution, the Auditor-General for the Federation shall be
appointed by the President on the recommendation of the Federal Civil Service Commission,
subject to confirmation by the Senate.
3.4.3 Functions of the Auditor-General for the Federation.
According to section 109 of the Financial Regulation No 109 of January 2009, the Auditor-General
shall carry out the following statutory functions:
1) Financial Audit in accordance with extant laws in order to determine whether government
accounts have been satisfactorily and faithfully kept.
2) Appropriation Audit-to ensure that funds are expended as appropriated by the National
Assembly.
3) Financial Control Audit-to ensure that laid down procedures are being observed in
tendering, contracts and storekeeping with a view to preventing waste pilferage and
extravagance.
4) Value-for-Money (Performance) Audit - to ascertain level of economy, efficiency and
effectiveness derive from government projects and programmes.
5) Vetting, commenting and certifying audited accounts of all Parastatals and
government statutory corporations in accordance with the Constitution of the
Federation.
6)
Audit of the accounts of federal government establishments located in all states
97
of the federation
including all Area Councils in the Federal Capital Territory,
Abuja;
7)
Audit of the Accountant-General's Annual Financial Statements;
8)
Auditing and certifying the Federation Account;
9)
Deliberation, verification and reporting on reported cases of loss of funds,
stores, plants and
equipment as stipulated in Chapter 25 of the Financial
Regulations;
10)
Pre and post auditing of the payment of pensions and gratuities of the
military and civilian
11)
retired
personnel;
Periodic checks of all Government Statutory Corporations, commissions,
Authorities, Agencies,
including all persons and bodies established by an Act
of the National Assembly; and
12) Revenue audit of all government institutions
3.4.4 Constitutional functions of the Auditor-General of the Federation
The constitutional functions of the Auditor-General are as follows:
1) S. 85 (2): The public accounts of the Federation and of all offices and courts of the
Federation shall be audited and reported on by the Auditor-General to the National
Assembly, and for that purpose he shall have access to all the books, records, returns and
other documents relation to those accounts.
2) S. 85 (3): Though the Auditor-General is not authorised to audit the accounts or appoint
auditors for government statutory corporations, commissions, authorities, agencies,
including all persons and bodies established by an Act of The National Assembly, but the
Auditor- General shall:(a) Provide such bodies with;
i. A list of qualified and experienced auditors from which the bodies shall appoint their
external auditors, and
ii. Guidelines on the level of fees to be paid to the external auditors.
(b) Comment on their annual accounts and auditors reports thereon.
(3)
S. 85 (4): He shall have power to conduct periodic checks on all government statutory
corporations, commissions, authorities, agencies etc. including all persons and bodies
established by an Act of The National Assembly.
(4)
S. 85(5): He shall, within ninety days of receipt of the Accountant-General’s Financial
Statements, submit his reports to each House of the National Assembly.
98
Self- Assessment Exercise.
1. Explain the power of the Auditor General for the Federation.
3.5
ACCOUNTING OFFICER
According to section 111 of the Financial Regulation, the Term "Accounting Officer" means the Permanent
Secretary of a ministry or the head of extra-ministerial office and other arms of
government who is in full control of, and is responsible for human, material and financial
resources which are critical inputs in the management of an organization.
3.5.1 Responsibility of the Accounting Officer
According to the Financial Regulation, the Accounting Officer shall:
1. Be responsible for safeguarding of public funds and the regularity and propriety of
expenditure under his control
2. Observe and comply fully with the checks and balances spelt out in the existing Financials
Regulations which govern receipts and disbursement of Public Funds and other assets
entrusted to his care and shall be liable for any breach thereof; and
3. Note that his accountability does not cease by virtue of his leaving office and that he
may
be called upon at any time to account for his tenure as Accounting Officer.
3.5.2 The functions of the Accounting Officer
According to the Financial Regulation, the Accounting Officer shall include:
1. Ensuring that proper budgetary and accounting systems are established and maintained to
enhance internal control, accountability and transparency;
2. Ensuring that the essential management control tools are put in place to minimize waste
and
fraud;
3. Rendering monthly and other financial accounting returns and transcripts to the
Accountant-
General of the Federation as required by the Financial Regulations;
4. Ensuring the safety and proper maintenance of all government assets under his care;
5. Ensuring personal appearance before the Public Accounts Committee to answer audit
queries to ministry/ extra-ministerial department or agency;
6. Ensuring accurate collection and accounting for all public moneys received and expended;
7. Ensuring prudence in the expenditure of public funds;
8. Ensuring proper assessments, fees, rates and charges are made where necessary;
9. Ensuring internal guides, rules, regulations, procedures are adequately provided for the
security and effective check on the assessment, collection and accounting for revenue;
99
10. Ensuring that any losses of revenue are promptly reported and investigated;
11. Ensuring that all revenue collected are compared with the budgeted estimates with a view
to highlighting the variances, positive or otherwise and the reasons for them; and
12. Ensuring that any revenue collected are not spent, but remitted to the appropriate
authorities promptly.
3.5.3 Special Functions of the Accounting Officer under the Public Procurement Act
2007
In compliance with their special role under the Public Procurement Act, all accounting officers of
ministries, extra - ministerial offices and other arms of government are required to:
1. Preside over the activities of their Tenders Boards for the proper planning and evaluation of
tenders and execution of procurements;
2. Ensure that adequate appropriation is available for procurements in their annual budget;
3. Integrate their entity's procurement expenditure into its yearly budget;
4. Ensure the establishment of a procurement planning committee over whose activities they
shall preside;
5. Constitute a procurement evaluation committee for the efficient evaluation of tenders;
6. Constitute a procurement Committee;
7. Render annual returns of procurement records to the Bureau of Public Procurements;.
8. Liaise with the Bureau of Public Procurements to ensure the implementation of its
regulations; and
9. Ensure compliance with the provisions of the Public Procurement Act by their
organizations, failing which they shall be personally liable for any breach or contravention
thereof, whether or not such breach of contravention was caused by them in person, their
subordinates or any person to whom they may have delegated their responsibilities.
3.6
Sub-Accounting Officer
In accordance with Government Regulations, this officer who is entrusted with the receipts,
custody and disbursements of public funds, is required to maintain one of the recognized cash
books, together with such other books that may be required by the Accountant-General. Example
includes Sub - Treasurer of the Federation, Federal Pay Officer (FPO), Police Pay Officer (PPO),
Custom Area Pay Officer(CAP0), Director of Finance and Accounts(DFA), etc.
3.6.1 Functions of the Sub-Accounting Officer
100
According to Government Regulations, the functions of the Sub-Accounting Officer, are as
follows:
i. Ensuring that the proper system of accounts as prescribed by the Accountant- General
is
established.
ii. Exercising supervision over the receipts of public revenue and ensuring prompt collection.
iii. Promptly bringing into account, under the proper heads and sub-heads of the estimates or
other approved classifications, all receipts, whether revenue or otherwise.
iv. Ensuring that proper provision is made for safe keeping of public funds, securities, stamps,
receipts, tickets, licences and other valuable documents.
v. Exercising supervision over all officers under his authority who are entrusted with the
receipts and expenditure of public funds and taking precautions by putting in place efficient
checks against the occurrence of fraud, embezzlement and carelessness.
vi. Supervising the expenditure of Government and ensuring that no payment is made without
proper authorization.
vii. Promptly charging in his accounts under proper Heads and Sub-Heads all disbursements.
viii. Checking all cash and stamps in his care to reconcile the amounts with the balances in the
cash book and stamp register.
ix. Promptly bringing to account as a receipt, any cash or stamp found in excess of the balance
shown in the cash book or stamp register.
x. Making good any minor deficiency not caused by theft or fraud, in the cash or stamps, for
which he is responsible and thereafter reporting in writing to the Minister of Finance.
xi. Promptly preparing such financial statements as are required by law or the Minister of
Finance.
xii. Maintenance of cash book.
3.7
SUB -TREASURER OF THE FEDERATION
The Sub-Treasurer of the Federation is an accounting officer who is responsible for the custody,
receipt and disbursement of all public money earned and spent from foreign and indigenous
investments.
3.7.1 Functions of the Sub-Treasurer of the Federation
1. To ensure that all foreign investments are well monitored and supervised.
2. To ensure that all government foreign investments are secured and generate reasonable
interest.
101
3. He is responsible for reviewing and updating the accounting systems in use in the office of
the Accountant-General.
4. To perform any other function as may be directed by the Accountant-General.
3.8
THE REVENUE COLLECTOR
The Revenue Collector is the officer who is responsible for collecting some specified revenue on
behalf of the government. He is issued an official treasury receipt 6A for the regular collection of
particular items of revenue as specified in the estimate. The Revenue Collector must maintain a
recognised revenue cashbook. He is responsible to the accounting officer of the
ministry/department who will prepare a code of instructions of the procedure to be followed in his
ministry/department to ensure prompt and up-to-date collection of government revenue. It is
worthy of note that where the revenue collector is entrusted with collection of more than one form
of revenue, he must keep a “ Revenue Classification Slip” where the Date, Description, Amount,
Head, Sub-head and the form of revenue will be specified.
3.8.1
Functions of Revenue Collector
1. He is required to exercise total authority over the receipt of all revenue accruable to the
government and ensure prompt, accurate and up-to-date collection.
2. He is to classify all his collections under proper heads and sub-heads of all revenue collected
by him.
3. He is to safeguard all public funds, securities and paper money entrusted in his care.
4. As a routine function, he should check all cash in his care and reconcile same with the
balance in the cash register.
5. Promptly report any anomaly discovered by way of fraud or mis-appropriation of
government money in his care to a superior officer.
6. He must ensure that adequate, up-to-date accurate and reliable accounting records are kept.
7. He must ensure that the cash limit balance that should be in his possession is not exceeded.
8. He is to report to his superior officer any loophole that may be exploited by subordinate
officers in the modalities employed in the collection of government revenue.
9. He is responsible for the disclosure of all cash, stamps, paper moneys, securities e.t.c
balances in his custody when Board of Survey is raised by the Accountant-General.
10. He is required to have effective supervision of the officers under his authority to ensure
prompt and accurate collection of revenue.
102
3.9
THE FEDERAL PAY OFFICER
He is the officer in charge of the Federal Pay Office located in a State. He performs the same
function as the Sub-Accounting Officer.
3.9.1 Functions of the Federal Pay Officer
1. He is to administer all the financial transactions between the Federal Government and State
Government.
2. He is to ensure hitch free financial transactions between Federal Government Ministries in
each state of the Federation.
3. He is to ensure unperturbed financial transaction between Federal Government Departments
in each state of the Federation.
3.10
DIRECTOR OF BUDGET
The Director of budget is the officer responsible for the administration of the Department of
Budget and Planning. The department is sub-divided into four other departments namely:- fiscal,
revenue, expenditure, and budget remitting and evaluation. Each department plays a separate role
different from others.
3.10.1
Functions of the Director of Budget
1. Monitoring of revenue generation and collection by the agencies of government.
2. Revenue estimation and publication in the budget book.
3. Reconciliation of actual revenue from oil and non-oil sectors and their comparison with
estimated revenue.
4. Estimation of revenue from Joint Venture operations in relation to oil explorations,
production and personnel administration.
5. Implementation of the budget through issuance of Authority to Incur Expenditure or
Warrants for both capital and recurrent expenditure as appropriate
6. Assembly, collation and arrangement of all data, information and other necessary inputs
required for budget preparation.
7. To make reports on the performance of budget and assess the impact of the budget on the
economy.
8. Collection and analysis of expenditure returns.
9. Establishing and maintaining a data bank in the budget office.
10. To monitor and evaluate the performance of programmes funded through the budget.
103
11. To act as the liaison between the President, Ministries, and Departments during
budget
preparation.
12. To assist the President in the preparation of annual estimates.
13. To formulate fiscal, monetary and economic policies required to develop the
economy.
3.11
IMPREST HOLDER
According to Government Regulation, this is an officer other than a Sub-Accounting Officer, who
is charged with the disbursement of public money whose vouchers cannot be presented
immediately to a Sub-Accounting Officer. He has to keep an lmprest Cash Book. An imprest is
defined as a small amount of money set aside to meet petty cash payments, the vouchers of which
cannot be presented to a Sub-Accounting Officer immediately. An imprest holder is therefore a
petty cashier who handles such float of money and keeps necessary records for restoration to the
earlier amount granted, at the appropriate time.
There are two types of imprest, namely:
1. Standing Imprest: This imprest is operated from the commencement to the end of a
financial year (1 January to 31 December of each year). On the last working day of the
year, an account is rendered and all unspent balances lapse.
2. Special lmprest: This imprest is operated from the commencement of a financial year until
the objectives for which it is set up have been achieved. Upon the attainment of such
objectives, an account will be rendered and all unspent balances shall lapse.
3.11.1 Operating an Imprest
a. Any Ministry which intends to operate an imprest has to apply in writing to the
Accountant-General of the Federation, stating the amount and purpose for which it is
required.
b. The Accountant-General of the Federation and the Accounting Officer of the
Ministry or Extra- Ministerial Department will issue imprest after the Minister of
Finance has conveyed the authority in the Annual General lmprest Warrant.
3.11.2 Rules for operating an Imprest
Adams (2013) identifies the following rules for operating an imprest:
(a) Establishment of authority limit.
(b) Segregation of duty.
104
(c) Proper books of accounting records must be kept.
(d) Provision of a safe or cash till.
(e) There should be periodic cash count.
(0 Adequate supervision of the imprest holder.
(f) Imprest should be retired on due date.
(g) Any amount above exceeding a certain limit must be banked.
(h) Authorisation and approval.
(i) Money must be expended for the purpose for which they were meant for.
3.11.3 Functions of Imprest Holder:
Adams (2013) also identifies the following functions of the imprest holder:
a. See that proper provision is made for the safekeeping of public moneys, securities etc.
b. Promptly charge in his account under proper heads and subheads, all disbursement
made by him.
c. Check all cash and stamps in his care to verify the amounts with the balances shown in
the cashbook or stamp register.
d. Promptly make good any minor deficiency not caused by theft or fraud in the cash or
stamps his care.
e. See that all books are correctly posted up to date.
f. Produce when required by the Accountant- General and the Auditor- General, all cash,
stamps etc in his care.
g. Ensure that monies are expended for the purpose for which they were meant for.
3.12
OFFICER CONTROLLING EXPENDITURE
This is an officer in charge of the various vote-heads of each Ministry or Extra- Ministerial
Department, saddled with the responsibility of monitoring Government expenditure and ensuring
that there is no extra-budgetary spending.
3.12.1 Functions of Officer Controlling Expenditure
1.
Supervision of Government expenditure and ensuring that no payment is made
without
proper authority.
2.
Promptly charging in his account under proper Heads and Sub-heads all
105
disbursements.
3.
Ensuring that all books are correctly posted and kept up to date.
4.
Producing when required by the Accountant-General and the Auditor-General, all cash,
stamps, etc., in his custody.
5.
Ensuring that funds are available under the appropriate Head and Sub-heads, to meet
payments of specific vouchers.
6.
Effective monitoring of Government expenditure.
7.
Ensuring that there is no extra-budgetary spending.
8.
Ensuring that there is adequate security over the custody of public funds.
10.
Maintenance of the vote book.
3.13
HEAD OF FINANCE AND ACCOUNTS
According to Section 114 of the Financial Regulation the Head of Finance and Accounts
of a ministry/ extra- ministerial office and other arms of government shall perform the
following duties, amongst others:
1. Ensuring compliance with Financial Regulations and the Accounting (Code by all staff
under his control and supervision;
2. Ensuring adequate supervision of the disbursement of funds and proper monitoring and
accounting for revenue;
3. Advising the Accounting Officer on all financial matters as well as t the more technical
provisions of these Regulations and other Treasury and Finance Circulars;
4. Maintaining accounting records such as books of accounts, Main and Subsidiary Ledgers;
5. Ensuring prompt rendition of all returns e.g. Consolidated Accounts (monthly transcripts),
Bank reconciliation statements, Revenue and Expenditure returns as prescribed in these
Regulations;
6. Compiling and defending of the budget proposals and ensuring effective budgeting control
by
matching/comparing budgeted figures with actual expenditure or revenue as the
case maybe and advise the Accounting Officer appropriately;
7. Ensuring that all staff under his control are exposed to regular training programmes to
prepare them for the efficient performance of their duties;
8. Liaising with the Accountant-General from time to time when in doubt in the interpretation
of the provisions of these Regulations and other Treasury Circulars or when confronted
with difficulties in the performance of his duties; and
9. Ensuring the existence of an effective Audit Query unit/ section to promptly deal with all
queries from Internal Audit Unit, Inspectorate Department, Office of the Accountant-
106
General, Office of the Auditor-General and Public Accounts Committee.
4.0
SUMMARY
The chapter discussed the various posts held by financial officers in the federation and their
respective functions. The means of appointment and powers of some statutory financial officers
were also discussed. The finance officers identified and discussed in the unit are Minister of
Finance, the Accounting Officer, Accountant-General of the Federation, the Auditor-General for
the Federation, the Sub-Accounting Officer, Sub -Treasurer of the Federation, the Revenue
Collector, functions of the Revenue Collector, the Federal Pay Officer, Director of Budget, the
Imprest Holder, Officer Controlling Expenditure, and the Head of Finance and Accounts.
5.0 CONCLUSION
In this unit, you have been introduced to the key officers who are responsible for maintaining and
upholding the activities in the accounting departments of Government Ministries and Parastatals at
the Federal, State and Local levels.
6.0 TUTOR MARKED ASSIGNMENT
1. What are the procedures for the appointment and removal of the Appointment of AuditorGeneral for the Federation?
2. List the functions of the Sub -Treasurer of the Federation
3. Discuss the rules for the operation of an imprest.
7.0
REFERENCES/ FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition 3, Lagos:
Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting and
finance, Benin City: Mindex Publishing Company Limited
ICAN (2009) Public sector accounting for accounting technicians scheme of WEST AFRICA
(ATSWA): Study pack, Lagos: ICAN
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
107
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
108
MODULE II
Unit 1:
Sources of government revenue
Unit 2:
Government expenditure
Unit 3:
Financial control in government
Unit 4
Preparation of vouchers
Unit 5
The cash office
Unit 6:
Bank reconciliation
109
UNIT 1
SOURCES OF GOVERNMENT REVENUE
CONTENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Sources and Classifications of Government Revenue
3.2
Federation Account Revenue Heads
3.2.1
3.3
3.4
Revenue Allocation Formula
Federation Accounts Allocation Committee - FAAC.
3.3.1
Functions of FAAC
3.3.2
Composition of FAAC
State Joint Local Government Account Allocation Committee - SJLGAAC.
3.4.1
Composition
3.5
Sources of Revenue Payable to the Federation Account- Heads 1 To 3.
3.6
Federal Government Account or Consolidated Revenue Fund
3.6.1
Federation Account and Consolidated Revenue Fund in Diagrams
3.6.2
Analysis of The Various Sources Of Revenue Payable To CRF
3.6.3
Charges to the Consolidated Revenue Fund
3.7
Value Added Tax (VAT)
3.8
Development Fund
3.8.1
3.9
Charges from the Development Fund
Contingency Fund
3.9.1
Charges on the Contingency Fund
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0
INTRODUCTION
In Module 1, the key Finance Officers in Government were identified and discussed along with
their financial responsibilities, powers, functions and the terminologies used in Public Sector
Accounting and Finance. In this Unit, the various sources of Government revenue will be
identified and studied.
110
2.0 OBJECTIVES
After studying this Unit, you should be able to:
1. Identify the Sources and Classifications of Government Revenue
2. Identify the Federation Account Revenue Heads
3. Understand the Revenue Allocation Formula
4. Know the composition and functions of the
Federation Accounts Allocation Committee -
FAAC.
5. Know the composition and functions of the
State
Joint
Local
Government
Account
Allocation Committee - SJLGAAC.
6. Identify the sources of Revenue Payable to the Federation Account and the Consolidated
Revenue Fund, respectively.
7. Appreciate the charges to the various funds of the Government.
3.0 MAIN CONTENT
3.1 Sources and Classifications of Government Revenue
The Federal Government derives its revenue from different sources. The Federal Government
Revenues are kept in the Consolidated Revenue Fund. Before the 1989 budget, the Federal
Government revenue sources were classified into the following Heads:
Head 1:
Indirect Taxes.
Head 2:
Direct Taxes.
Head 3:
Mining.
Head 6:
Direct Allocation.
Head 7:
Direct Taxes (PAYE).
Head 8:
Licences and Land Revenue.
Head 9:
Mining (Solid Minerals).
Head 10:
Fees.
Head 11:
Earnings and Sales.
Head 12:
Rent of Government Property.
Head 13:
Interests and Repayments (General).
Head 14:
Interests and Repayments (State Government).
Head 15:
Reimbursements.
Head 16:
Armed Forces.
Head 17:
Miscellaneous.
The 1989 Budget classified the Federal Government revenue sources were into two groups, viz:
111
(a) Federation Account Revenue Heads, and
(b) Federal Government Account Revenue Heads. The 1989 classification was modified in 1994
fiscal year, as follows:
(a) Federation Account Revenue Heads;
(b) Value-Added Tax (VAT), and
(c) Federal Government Account Revenue Heads.
3.2 Federation Account Revenue Heads
The Federation Account was established by Section 162 of the 1999 Constitution of the Federal
Republic of Nigeria. The Federation Account is one into which is paid all revenue collected by the
Government of the Federation, except the proceeds from the PAYE of the personnel of the Armed
Forces of the Federation, the Nigeria Police Force, Foreign Service Officers and Residents of the
Federal Capital Territory, Abuja.
It is a distributable pool account which is shared among the three tiers of government using the
revenue allocation formulae shown in the table below.
3.2.1 Revenue Allocation Formula
Up
to 1/1/90
1/1/92
to Existing
31/12/89
to31/12/91
31/12/92
Formula
%
%
%
From
1/6/92
(%)
Federal Govt.
55.00
50.00
50.00
48.50
State Govet.
32.5
30.00
25.00
24.00
Local Govt.
10.00
15.00
20.00
20.00
Amelioration
of 1.00
Ecological
5.00
Special 5.00
Fund
7.50
Special
Fund
Disasters
Oil
Producing 1.50
Areas
NOTES:
1.
13% of revenue derived from oil sources goes to the States from which it is obtained, in
consonance with the principle of derivation.
112
2.
7% and 4% of the gross revenue in the Federation Account are allocated to the Customs
Service and Federal Inland Revenue Services, respectively
3.
The rates stated above are "first line charges." That is, 13% derivation source is adjusted
(deducted) in the oil sector revenue received from the total oil proceeds; 11% (7% plus 4%)
of other revenue receipts are taken out of the non-oil collections.
4.
Whatever remains in the Federation Account distributable pool is shared between the three
tiers of Government as in column 'd' of the table above.
5.
The 24% allocation to the 36 States is distributable, net of the adjustments in the earlier
three notes or bullets. Abuja is considered a State, to make 37 'States which will share 24%.
6.
The 20% of the Local Government allocation from the next balance is shared between the
774 Local Governments in Nigeria.
7.
The 24% allocation to the 36 States and Abuja treated as a 'State' for this purpose, is
redistributed, using the following criteria;
%
Equality of all States
40
Population;
40
Social development, e.g. primary school enrolment.
15
Internally generated revenue effort
5
Total
100
The various criteria are further explained as follows:
(1)
The 24.00 per cent standing to the credit of all the States in the Federation Account is
distributed among the States of the Federation using the factors specified below:.
(a)
(i)
Land mass of a State or local government shall be the proportional areal size (PAS) of the
State or the local government to the total areal size of Nigeria, and shall be obtained as
followsfor each State (PAS)=
Areal
size
of
Total areal size of Nigeria
State
x
100
(ii) for each Local Government(PAS) = Areal size of Local Government Area x 100
Total areal size of Nigeria
113
(b)
The allocation due to terrain is made on the basis of the proportional areal size of the three
identified major terrain types present in the State or Local Government area respectively,
which are(i)
wetlands / waterbodies;
(ii) plains; and
(iii)
(c)
highlands;
(i) Education as a parameter for allocation to Social Development Factor (SDF) is measured
in terms of primary school enrolment which attracts 60 per cent of the allocation to
education while the remaining 40 per cent is made using secondary/commercial school
enrolment; and allocation on the basis of primary school enrolment is made solely on direct
proportion. 50 per cent of the allocation on the basis of secondary/commercial school
enrolment is made in direct proportion while the remaining 50 per cent is made in inverse
proportion. School enrolment refers to public funded schools only;
(ii)
health as a parameter for allocation to social development factor is measured in terms
of the number of State/Local Government hospital beds there are and 50 per cent of the
allocation to health shall be made in direct proportion to the number of the State hospital
beds, while the remaining 50 per cent shall be made in inverse proportion;
(iii)
water as a parameter for allocation to social development factor shall be represented
by mean annual rainfall in the State headquarters and territorial spread of State: 50 per cent
of the allocation to water shall be made in direct proportion to the State's territorial spread,
while the remaining 50 per cent shall be made in inverse proportion to the mean annual
rainfall in each State headquarters, using the most current live year figures, the same year
for all the States.
2.
For the avoidance of doubt, a sum equivalent to the difference between the amount
standing to the credit of the Federation Account in anyone year, less the aggregate of the
sums specified in section 1 of this Act shall revert to the Federation Account to be allocated
and distributed in accordance with the provisions of this Act.
3.
Formula for distribution between Local Government Councils
114
Subject to the provisions of this Act, the amount standing to the credit of local government
councils in the Federation Account shall be distributed among the States of the Federation for the
benefit of their local government councils using the same factors specified in this Act.
4.
Proportion of revenue to be paid by each State to State Joint Local Government Account
(1)
In addition to the allocation made from the Federation Account under section 1 of this Act to
Local Government Councils, there shall be paid by each State in the Federation to the State
Joint Local Government Account (as specified in subsection (5) of section 162 of the
Constitution of the Federal Republic of Nigeria) in each quarter of the financial year, a sum
representing 10 per cent of the internally-generated revenue for that quarter of the State
concerned.
(2)
The 10 per cent of each State's internally-generated revenue payable to the Local
Government Councils in the State, under the provision of subsection (1) of this section,
shall be distributed among the Local Governments in that State on such terms and in such
manner as the State House of Assembly may prescribe.
Self- Assessment Exercise
1
Discuss the revenue allocation formula before and after 1989
3.3
Federation Accounts Allocation Committee - FAAC
FAAC was set up by Allocation of Revenue (Federation Account, etc.) Act, Cap.A15, LFN 2005
to deliberate upon and allocate funds from the Federation Account to the three tiers of
Government.
3.3.1 Functions of FAAC
(a)
To ensure that allocations made to the States from the Federation Account are
and
fully paid into the Treasury of each component, on such bases and terms
prescribed
law.
(b)
To submit annual report of its performance/activities to the National Assembly.
3.3.2 Composition of FAAC
(a)
The Federal Minister of Finance - Chairman,
(b)
All State Commissioners of Finance - Members.
(c)
All States' Accountants - General.
(d)
Accountant - General of the Federation.
115
promptly
by
(e)
The Permanent Secretary of the Federal Ministry of Finance or representative as
designated by the said Minister, is the Secretary.
3.4.1 Composition
(a) The Permanent Secretary for Local Government Affairs;
(b) All the Chairmen of the Local Governments in the States:
(c) A representative of the Accountant - General of the State, and
(d) The Federal Pay Officer in the State.
3.5 Sources of Revenue Payable to the Federation Account - Heads 1 to 3
These are:
(a)
Head 1- Direct Taxes: These are payable by the individuals and firms such as company
income tax, petroleum profit tax, capital gain tax, back duty assessment, and personal
income tax of the foreigners residing in Nigeria.
(b)
Head 2- Indirect Taxes: These are taxes raised from goods and services in the form of
custom and excise duties, forfeiture penalties, VAT, etc.
(c)
Head 3 - Mining: These are oil pipeline licence fees, rents of mining rights, mining fees,
royalties on minerals, NNPC earnings from direct sales, penalties for gas flared, and rent of
oil well.
3.6 Federal Government Account or Consolidated Revenue Fund
The Consolidated Revenue Fund (CRF) was established by Section 80 of the Constitution of the
Federal Republic of Nigeria, 1999. Except those revenue items which are specifically designated to
other funds, all others shall be paid into the Consolidated Revenue Fund. The various sources of
income credited to the CRF as well as charges thereto are shown on the diagram at page 35.
3.6.1 Federation Account and Consolidated Revenue Fund in Diagrams
FEDERATION ACCOUNT REVENUE HEADS
Head 2:
Indirect Taxes
'Head 1:
Direct Taxes
Head 3:
Mining
CONSOLIDATED REVENUE FUND
Head 6:
Share from Federation Account
Head 7:
Direct Taxes (PAYE)
Head 8:
Licences and Internal Revenue
Head 9:
Mining (Solid Minerals)
116
Head 10:
Fees
Head 11:
Earnings and Sales
Head 12:
Rent of Government
Head 13:
Interests and - General Repayments
Head 14:
Interests and Repayments
Head 15:
Armed Forces
I Head 16:
Reimbursements
Head 17:
Miscellaneous
3.6.2 Analysis of the Various Sources of Revenue Payable To CRF
Analysis of various sources of income is given below:
(a)
Head 6-Direct allocation from the Federation Account at the prevailing rate.
(b)
Head 7-Direct Taxes: These include PAYE of the Armed Forces and Police Personnel,
Foreign Service Officers and Residents of the Federal Capital Territory, Abuja.
(c)
Head 8-Licence & Internal Revenue: These are realized from the issues of licences, e.g.
arms and ammunition licence fees, goldsmith licence fees, radio & T.V Licence fees, gold dealer's
licence fees.
(d) Head 9-Mining: These include mining fees, rent of crown lands, royalties on gold, tin, iron ore,
and coal mines.
(e) Head 10-Fees: They are fees received on services rendered by Government officials, e.g., court
fees, court fines and medical fees.
(f) Head 11-Earnings and Sales: Earnings and sales are derived from the use and subsequent
disposal of Government property, e.g. sales of stores, publications and stamps, commission on
money order and poundage on postal orders.
(g) Head 12-Rent of Government Property: The incomes include rent on Government quarters,
land and buildings.
(h) Head 13-Interest & Repayments (General): These are interest and repayment of loans granted
to individuals by the Government. Corporations and Government companies. An example
is the repayment of motor vehicle loans.
(I) Head 14-Interest & Repayments (State): They are interest and repayment of loans granted to the
State Governments.
(j) Head 15-Armed Forces: The sales of Armed Forces' property such as old vehicles and stores
constitute revenue.
117
(k) Head 16-Reimbursements: These are refunds for services rendered to the State and Local
Government Councils, Public Corporations and other Statutory Bodies by the Federal
Government officers. Examples are reimbursements of audit fees and refunds of overpayments
made to Government workers.
(I) Head 17-Miscellaneous:These are other sources of revenue, apart from those stated above.
Examples are overpayments refunded, lapsed deposits.
All the revenues discussed above are paid into the Consolidated Revenue Fund.
3.6.3 Charges to the Consolidated Revenue Fund
These are expenditure items chargeable to the Consolidated Revenue Fund. The charges to the
Consolidated Revenue Fund are grouped as follows:
(1)
All Recurrent Expenditure Heads in the approved estimates, e.g. personnel cost, overhead
cost and servicing of national debts.
(2)
Salaries and Consolidated Allowances of Statutory Officers: These are expenditure
chargeable directly to the Consolidated Revenue Fund, irrespective of budget approval. Statutory
Officers
include:
(a)
Commissioners of the following Bodies:
(b)
Police Service Commission.
(c)
Public Complaints Commission
(d)
Public Service Commission
(e)
Nigerian Law Reform Commission
(f)
Independent National Electoral Commission.
(3)
Auditor - General for the Federation.
(4)
President and Justices of the Federal Court of Appeal
(5)
Chief Judge and Judges of the Federal High Court
(6)
Chief Justice and Justices of the Supreme Court.
(7)
Pension and Gratuity. These are the entitlements of both statutory and non-statutory
officers, including members of the Armed Forces.
3.7 Value-Added Tax (Vat)
VAT is a tax imposed on value which the supplier or seller of good/services add to the
goods/services before selling it. The introduction of VAT was necessitated by the need to boost the
revenue of the government from non-oil sources following the fluctuations in oil revenue due to
the glut in the international market. VAT was introduced in 1994 fiscal year with the promulgation
118
of VAT Decree No. 102 of 1993 at the rate of 5% and is being administered by Federal Inland
Revenue Service (FIRS).
3.8 Development Fund
The existence of the Development Fund was solidified by the 1999 Constitution of the Federal
Republic of Nigeria, although created earlier by Section 25 the Finance (Control & Management)
Act of 1958.The Fund is established for the purpose of capital development projects. The sources
of money accruing to the Development Fund could be divided into four, viz:
(a) Contribution from the Consolidated Revenue Fund: These are yearly transfers of money from
the Consolidated Revenue Fund, in the Federal Government's wisdom, notwithstanding that the
Constitution does not expressly state this.
(b) External Grants: These are usually received from foreign countries and non- financial
institutions.
(c) External Loans: These may come from such foreign bodies as the International Monetary fund
(IMF).
(d) Internal Loans: These are loans raised and retired within the country. They may be long-term
loans, raised through development stocks, or short-term loans through Treasury Certificates,
(which have a life span of two years,) and Treasury Bills which mature in 91 days.
3.8.1 Charges from the Development Fund
The charges from the development fund may also be categorized into four main classes, thus:
(a)
Summary of Capital Expenditure Payments: This is expenditure incurred for the provision
and
maintenance of infrastructural amenities such as the construction of bridges and
dams.
(b)
General Administration: These are expenditure items made for the provision and
maintenance of Army Barracks/Police Stations, Staff Houses, Motor Vehicles and
Hospitals.
(c)
External Financial Obligations: They are disbursements made for expenditure
to provide financial assistance to countries which are in need. The relief
donations, grants
(d)
incurred
may be in form of
and aids, to neighbouring countries.
Loans made to State Governments in Nigeria: There are different types of loans which
the Federal Government grants to the States, for developmental purposes.
119
3.9 CONTIGENCY FUND
Contingency Fund has its legality under Section 81 of 1979, and 1989 Constitutions and section 83
of the 1999 Constitution. The Fund is set up to meet unforeseen expenditure urgent situations
occasioned by such as natural disasters. The Contingency Fund derives its income from the
Consolidated Revenue Fund.
3.9.1 Charges on the Contingency Fund
A charge will arise on contingent grounds in exceptional cases where virement is not possible, and
where an application for additional provision reveals that the issue of funding cannot be delayed
without causing serious injury to public interest. The need cannot wait till a Supplementary
Appropriation Act is passed.
ILLUSTRATION 1
QUESTION 1
The following is a list of some items (Revenue and Expenditure) in respect of Consolidated
Revenue Fund (CRF) and other receipts of Federal Republic of Yobaria for the years ended 31
December 2011 and 2012 respectively:
2011
2012
^'000
^'000
1,200
1,005
Total Internally Generated Revenue
690
610
Overhead cost
225
218
Personnel cost
1,305
1,061
380
290
Opening balance of Capital Receipts as at 1 January
50
50
Grants and reimbursement from Developed Nations
55
50
External loans
675
577
Consolidated Revenue Fund charges
325
268
Revenue received through the Statutory
Federation Account Allocation
Value-Added-Tax (VAT)
120
Prepare Consolidated Revenue Fund (CRF) and determine the surplus of Revenue over
Expenditure or Deficit of Expenditure over Income. (Adapted from ATSWA PART 11
EXAM)
SOLUTION TO QUESTION 1
(a)
Federal Republic of XYZ
Consolidated Revenue Fund (CRF) for the year
ended 31 December 2011 and 2012
2011
2012
^'000
^'000
690
610
1,200
1,005
Value Added Tax (VAT)
380
290
Total Recurrent Revenue
2,270
1,905
325
268
Personnel Cost
1,305
1,061
Overhead Cost
225
218
(1,855)
(1,547)
415
358
Total 1nternally Generated Revenue
Revenue allocation from Federation Account
Consolidated Revenue Fund Charges
Total Recurrent Expenditure
Surplus of Revenue over Expenditure
(b)
The sources of revenue that are credited to the CRF other than those listed in
the question are:
(i)
Direct Taxes
(ii)
Mining
(iii)
Earnings and Sales
(iv)
Rent of Government Properties
(v)
1nterest and Repayment
(vi)
Reimbursements (from States and Local Governments)
(vii)
Sale of Armed Forces properties.
121
ILLUSTRATION 2
The following information has been extracted from the records of the Federal Government of
Nigeria, for the month of July, 2015.
Receipts from:
^’000
Companies Income Tax
6,000,000
Petroleum Profit Tax
20,000,000
Export Duties
.
NNPC Oil sales ,
5,000,000
9,000,000
Licences
500,000
Royalties from mineral oil
3,000,000
Royalties from solid minerals
400,000
Interest and dividends on Federal Government investments 1,500,000
PA YE from the personnel of Police, Armed Forces,
2,500,000
Residents of FCT and External Affairs Ministry Federal Government
share of VAT
1 ,000,000
Repayment of Federal Government loans
500,000
Payments:
Salaries and allowances of statutory office holders
4,000,000
Other statutory charges '
7,000,000
Recurrent expenditure
.
12,000,000
Transfers to capital expenditure and development fund
5,000,000
The balance in the Consolidated Revenue Fund as at 30 June 2015 was ^l billion (credit). The
current Revenue Allocation formula is as follows:
%
Federal Government
48.5
State Governments
24.0
Local Governments
20.0
Others
7.5
Total
100.0
Required:
In the books of the Federal Government of Nigeria, write up the following for the month of July
2015:
(i)
The Federation Account
(ii)
The Consolidated Revenue Fund.
122
SOLUTION TO ILLUSTRATION 2
^’000
^’000
Fed. Government
20,855,000 CITA -
State Government
10,320,000 PPT
6,000,000
20,000,000
Local Government
8,600,000 Export Duties
5,000,000
Others
3,225,000 NNPC Oil sales
9,000,000
Royalties from Min. oil
43,000,000
3,000,000
43,000,000
ii) Consolidated Revenue
^'000
Salaries & Allowances.
^'000
Bal. B/f.
- Office holder's
4,000,000 Share of VAT
- Other statutory Charges
7,000,000 Federation A/c.
Recurrent Expenditure
12,000,000 Licences
Transfer to Capital Exp.
'& Dev. Fund
Balance c/d.
1,000,000
20,855,000
500,000
Royalties from solid
5,000,000 Minerals
400,000
255,000 Int. & Dividends
1,500,000
PAYE
2,500,000
Fed. Govt. Loans
28,255,000
500,000
28,255,000
Balance b/d.
4.0
1,000,000
255,000
SUMMARY AND CONCLUSION
This unit discussed the Sources and Classifications of Government Revenue and the various funds
to which these revenues are collected. You were taught the Federation Account Revenue Heads
and the formula for allocating centrally collected revenue to the three tiers of government. The
Federation Accounts Allocation Committee (FAAC) was also discussed. You were also taught that
the State Joint Local Government Account Allocation Committee - SJLGAAC. was set up to
ensure equitable distribution of the statutory allocations to local governments from the Federation
Account and 10% of the internally generated revenue of the appropriate State Governments are
123
shared under the beneficiaries, in accordance with the 1999 Constitution, using the criteria as
Equality, Population, Primary School Enrolment and Internally Generated Revenue Data.
5.0 CONCLUSION
In this unit, you have learnt about the sources of revenue available to the Government and how
they are shared among the three tiers. In the next unit, we will be looking at the types of
expenditure incurred by Government. In the next unit, we will be looking at the types of
expenditure incurred by Government.
6.0
TUTOR MARKED ASSIGNMENT
1
What is the Federation account and what are its the sources and heads of revenue?
2
What are the functions of FAAC?
3.
Discuss the concept of the consolidated revenue fund and the various sources of
revenue
payable to it.
7.0
REFERENCES/ FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition 3, Lagos:
Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting and
finance, Benin City: Mindex Publishing Company Limited
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
124
UNIT 2
GOVERNMENT EXPENDITURE
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Types of expenditures
3.2
Expenditure estimations
3.3
Expenditure authorisation procedures
3.3.1
Commitment process
3.4
The concept of warrant
3.5
Classes of warrants
3.6
3.5.1
Recurrent expenditure warrants
3.5.2
Imprest Warrant
3.5.3
Provisional general warrant
3.5.4
General warrant
3.5.5
Supplementary General Warrant
3.5.6
Contingencies Warrant
3.5.7
Supplementary General Warrant
3.5.8
Virement Warrant
3.5.9
Reserved expenditure warrant
Capital expenditure warrant (specific warrant)
3.6.1
Development Fund Annual General Warrant (DFAGW)
3.6.2
Provisional Development Fund General Warrant:
3.6.3
Development Fund Supplementary General Warrant (DFSGW):
3.6.4
Development Fund Reserved Expenditure Warrant :
3.6.5
Development Fund Supplementary Warrant
3..6.7 Development Fund Special Warrant: A DFSW
3.6.8
Development Fund Virement Warrant:
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
125
7.0
1.0
REFERENCES/ FURTHER READING
INTRODUCTION
In this unit, You will learn about the meaning of government expenditure and the different types of
government expenditure. You will also learn how to carry out the estimation of government
expenditure and the government authorization procedure. You will also be taught the concept of
expenditure warrants as used in the public sector.
2.0
OBJECTIVES
After studying this unit, the student should be able to:
1.
Identify the different types of government expenditure.
2
know how to carry out expenditure estimations
3
know the government expenditure authorisation procedures
4
understand the concept of warrants
5
identify the different classes of warrants
3.1
TYPES OF EXPENDITURES
Expenditures of government are of two types, recurrent/revenue expenditures and capital or
development expenditures. Recurrent/revenue expenditures are expenditures that are incurred by
government departments in the day to day operations and services of the departments. Examples of
these expenditures are for salaries, stationeries and supplies, and other expenditures for general
administration. Capital or development expenditures are the expenditures that are made to acquire
physical and permanent assets, either in form of equipment, vehicles and buildings.
3.2
EXPENDITURE ESTIMATIONS
Before government departments would spend any moneys, these moneys would have to be
requested for and approved or authorised by the legislature. Government departments make
estimations for such expenditures in their budgetary estimates.
The Financial Regulation, Section 160, outlines the procedure that the head of department should
follow when estimating the expenditures for the budget year.
The head of department should
a. take into consideration the Government's macro-economic framework, Government
resources and priorities, and any ceilings approved by Cabinet;
126
b. prepare a strategic plan which shall include a definition of the department's mission, goals,
objectives, outputs and activities;
c. cost and prioritise the activities of the department taking into consideration the resource
ceiling;
d. prepare the budget statement in accordance with directives in the Regulations; and
e. Prepare cash forecast identifying when expenditure outflow is projected to take place.
3.3
EXPENDITURE AUTHORISATION PROCEDURES
The following is the general procedure for the authorisation of moneys to be spent by any
institution of government:

Ministry of Finance and Economic Planning (MOFEP) prepares a National work plan based
on MDA work plans to MOFEP as stipulated in the budget guidelines.

MOFEP issues quarterly Cash Ceiling to Cost Centres, sub-totalled at National, Regional and
District levels for each MDA.

MOFEP issues monthly expenditure warrants to Controller & Accountant-General attaching
cost centre details submitted by MDAs which show the sub-totals at National, Regional and
District levels.

Based on the Monthly warrants from MOFEP, CAGD issues warrants directly to cost centres
but aggregated to show sub-totals at National, Regional and District levels. An amount equal
to the warrants for the National, Regional and District level warrants is transferred into the
sub-Consolidated Fund Bank Account of the MDA, RCC and District Assembly
respectively. The treasuries have merged with the accounts or finance divisions of MDAs,
RCCs and MMDAs.

Each ministry has its own accounts/finance department which also performs the treasury
functions

Each Regional Co-ordinating Council has its finance directorate that also performs treasury
functions at regional level.

Each District Assembly has its finance office that performs treasury functions at the district
level.
A special Bank Accounts (Sub-Consolidated Fund Bank Account) has been opened for the
Ministries, Regional Co-ordinating Councils and District Assemblies as follows:
Each ministry has one Consolidated Fund sub-account (i.e. Special Bank Account). This bank
account serves the ministry and all National level departments and agencies.
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Each Regional Administration has one Consolidated Fund sub-account (i.e. special bank
account). This bank account serves the Regional Administration and all Regional level
departments, agencies and institutions. These accounts are at the nearest Bank of Ghana
branches.
Each District Assembly has one Consolidated Fund sub-account (i.e. 138 special bank accounts
for the Assemblies). This bank account serves the District Assembly and all district level
departments, agencies and institutions. These bank accounts are at the Bank of Ghana branches
nearest to the districts.
3.3.1 COMMITMENT PROCESS
On receipt of the quarterly cash ceilings the MDAs review their work plans. On receipt of
expenditure warrants and the Bank Transfer Advices,

The cost centre at the Head Office, Regional or District levels prepares Activity and
Expenditure Initiation Form to initiate Commitment process.

The cost centre requests for Quotation from suppliers and select the best.

The cost centre prepares Purchase Order (PO) and submits for approval.

The cost centre submits approved PO to Servicing Treasury for commitment

The cost centre dispatches PO to supplier.
3.4
THE CONCEPT OF WARRANTS
A warrant is a document used by the Ministry of Finance to authorise moneys to be released for
spending by government departments and agencies. The expenditures of government are made
under various forms of authorisations. The authorisations are to ensure that all payments are
made:
1.
from available monies for the particular expenditure,
2.
Under strict scrutiny of the responsible official of government, and
3.
For the right type of expenditure as authorised by Parliament.
3.5
CLASSES OF WARRANTS
There are two main classes of warrants, to match the two main classes of expenditures, the
recurrent or revenue expenditures, and capital expenditures. Recurrent expenditures are
expenditures that are incurred regularly in the course of the Organization's annual operations, and
are for items or services that are used within the year. Capital expenditures are incurred not very
128
often, and are incurred to acquire fixed assets. Warrants are therefore grouped as Recurrent
Expenditure Warrants and Specific or Capital Expenditure Warrants.
3.5.1 RECURRENT EXPENDITURE WARRANTS
Recurrent expenditure warrants were created in section 302 of the Financial Regulations (FR).
According to the provisions of this section, recurrent expenditure is payable from the Consolidated
Recurrent Revenue Fund and no such expenditure maybe incurred except on the authority of a
Warrant duly signed by the Minister of Finance. Without such a warrant the Accountant-General
shall not accept in his accounts any charge upon the Consolidated Revenue Fund.
The authority of the Minister of Finance shall be conveyed in one of the following forms of
recurrent expenditure warrant:
(a)
(b)
(c)
(d)
(e)
(f)
(g)
(h)
Provisional General Warrant
Annual General Warrant
Supplementary General Warrant
Reserved Expenditure Warrant
Contingencies Warrant
Statutory Expenditure Warrant
Establishment Warrant
Virement Warrant
3.5.2 (a) Imprest Warrant
The warrant is issued to authorise funds to be released to any senior officer who has to spend the
money and account for that periodically.
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3.5.3
Provisional general warrant
This authorisation is issued by the Minister of Finance to the Controller and Accountant
General to enable moneys to be released for expenditures for the early part of the year before
the Appropriation Act is passed. Such expenditures are made in respect of existing services
and continuing projects at the beginning of the financial year while the annual estimates of
the Government are examined for approval.
This warrant enables the Controller and Accountant General to send circulars to Vote
Controllers of government departments to enable them request for moneys by preparing a
Financial Encumbrance (FE), a document for expenditures of their organizations. Provisional
warrant is normally for the first 3 months of the year and is for an amount which is 25% of
the Annual Estimates to be approved.
3.5.4 Annual General warrant
This warrant is issued by the Minister of Finance to the Controller and Accountant General
after the annual estimates have been approved for all recurrent expenditures. The General
Warrant authorizes the Accountant-General to issue funds to pay for the personal emoluments
and other services provided in the Annual Estimates, and authorises the officers controlling
expenditure votes to incur expenditure on these purposes.
The Minister of Finance may exclude from the Annual-General Warrant any item of
expenditure over which it is desired to exercise special control. The original copy of the
Annual-General Warrant is addressed to the Accountant-General with a signed copy
forwarded to the Auditor-General. A notification that the warrant has been signed shall also
be published in the Federal Official Gazette. This warrant is created in FR 304.
3.5.5
Supplementary General Warrant
This warrant authorizes the Accountant-General to issue funds to pay for the additional
personal emoluments and other services which must have been approved in Supplementary
Estimates, and for which additional funds have been appropriated by the National Assembly.
The Minister of Finance may exclude from the Supplementary General Warrant any item of
expenditure over which he desires to exercise some control (see Financial Regulation 311).
The original copy of a Supplementary General Warrant is addressed to the AccountantGeneral with a signed copy forwarded to the Auditor- General. A notification that the warrant
has been signed shall also be published in the federal official gazette. (see FR305 generally).
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3.5.6 Contingencies Warrant
This may be issued in very exceptional cases, where virement is not possible and where an
application for additional provision reveals such a degree of urgency that the issue of funds
cannot without serious injury to the public interest be postponed until a Supplementary
Appropriation Act can be passed. Such authority shall be conveyed by the issuance of
Contingencies Fund Warrant to the Accountant-General, authorising him to transfer the
necessary funds from the Contingencies Fund to the Consolidated Revenue Fund, and also by
the issuance of a Contingencies Warrant, authorising expenditure form the head and SubHeads concerned. The original copies of both warrants are addressed to the AccountantGeneral, with signed copies forwarded to the Auditor-General. The Minister of Finance will
also notify the officers controlling the relevant votes of the additional expenditure authorized.
By FR 305, In no circumstances will expenditure incurred under this Contingency Fund
procedure be charged, or the relevant vouchers classified directly, to the Contingency Fund.
Expenditure authorized under this procedure is subject to the covering approval of the
National Assembly at its next meeting and must for this purpose be included in a
Supplementary Appropriation Act.
3.5.7 Supplementary General Warrant
This is the authority of the Accountant-General to transfer any sum appropriated from the
Consolidated Revenue Fund to the Contingency Fund by way of replenishment.
3.5.8 Virement Warrant
A virement warrant is issued when, as a result of circumstances which could not have been
foreseen when the Annual Estimates were being compiled, additional provision is required
under a particular sub-head (or a new sub-head is required) while, at the same time,
equivalent savings can be made under another sub-head of the same Head. Virement Warants
shall be issued on the approval of the virement by the National Assembly.
Virement of funds from one sub-head to the other may be granted under the following
conditions:
1.
The amount to be vired from any sub-head within a financial year under over-head
costs should not exceed any limit prescribed by the National Assembly in the
approved estimates for each sub-head under the over-head costs;
2.
Virement shall not be used to create a new sub-head
3.
It shall not be used to re-introduce items disallowed by the Estimates 4.
during the Estimates exercise or by the National Assembly;
131
Committee
4.
Virement shall not apply to queries raised by the Auditor-General in respect of
improper expenditure already incurred by a ministry/extra-ministerial office and other
arms of government.
Flowing from the foregoing, It could be said that virement is allowed under the following
circumstances:
1.
Virement is not allowed between line items of expenditure, i.e. it is not possible to
switch between votes; it is possible between sub-items of expenditure;
2.
1t is allowed where savings have been made in other expenditure items;
3.
1t is allowed where the savings do not arise from the deferment of expenditure;
4
1t is allowed if the extra funds are required for existing services, but not for any new
services;
5.
It is not allowed for capital expenditure, or expenditure which can lead to incurring
extra expenditure in the future;
6.
It is not allowed for an expenditure that will end up in a change in government policy.
To be successful, applications for virements should:
(i)
be in writing;
(ii)
state that a particular sub-head is in deficit;
(iii)
state that another sub-head is in surplus;
(iv)
indicate that bo th sub-heads are within the same economic Head;
(v)
state that after the transfers, the other sub-heads will not be in deficit;
(vi)
state that Virement Warrants are not sought to create new sub-heads,
3.5.9
Reserve expenditure warrant
This warrant is issued by the Minister to the Controller and Accountant-General to release
moneys that were reserved by the Minister out of the approved Annual Estimates. The money
is released to Organizations that apply for such moneys with explanation for the reasons for
the request.
Self-Assessment Exercise
1.
List the recurrent expenditure warrants known to you.
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3.6
Capital expenditure warrant (specific warrant)
FR 318 provides that Capital Expenditure is paid from the Development Fund, Expenditure
and no such expenditure maybe incurred except on the authority of a warrant duly signed by
the Minister of Finance, and without which the Accountant-General shall not accept in his
accounts any charge upon the Development Fund. The authority of the Minister of Finance is
conveyed in one of the following forms of Warrants:
1.
Provisional Development Fund General Warrant
2.
Development Fund General Warrant
3.
Development Fund Supplementary General Warrant
4.
Development Fund Reserved Expenditure Warrant
5.
Development Fund Supplementary Warrant
6.
Development Fund Special Warrant
7.
Development Fund Virement Warrant
3.6.1 (a) Development Fund Annual General Warrant (DFAGW)
This authorizes the Accountant-General of the Federation to issue funds for expenditure on
capital projects, as contained in the approved Capital Estimate, and mandates the Officers
controlling expenditure votes to disburse on the capital projects envisaged. The authority to
incur expenditure will be conveyed after the National Assembly has approved the Capital
Expenditure Budget.
3.6.2 (b) Provisional Development Fund General Warrant: This is issued before the approval
of the Capital Estimates by then National Assembly at the beginning of the financial year. It
authorises the payment from the Development Fund of such amount that is necessary for
carrying on the projects for which expenditure have been authorised in the previous financial
year, for a period of six months or until the authority of the National Assembly has been
obtained, whichever is shorter.
3.6.3 (c) Development Fund Supplementary General Warrant (DFSGW): The DFSGW
authorises the AGF to issue funds, and the officers controlling votes concerned to incur
expenditure, on projects as sanctioned by the National Assembly in resolutions approving
supplementary capital estimates. The HMF may exclude from SDFGW any item of
expenditure included in Supplementary Capital Estimates over which it is desired to exercise
special control.
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3.6.4 (d) Development Fund Reserved Expenditure Warrant : A DFREW authorises the
release of funds in the approved Annual or Supplementary Capital Estimates, but excluded
from the DFAGW & DFSGW, i.e. it is the release of funds which the HMF initially withheld
in order to exercise special control.
3.6.5 Development Fund Supplementary Warrant: A DFSW authorises additional
expenditure over and above that which is included in theDFAGW or DFSGW for purposes of
revote capital expenditure which was provided for in the previous financial year but not fully
expended in that year, accelerate the provisions of funds already formally allocated but not
voted for a project and also accelerate the completion of a specific capital project.
3..6.7 (f) Development Fund Special Warrant: A DFSW is issued in exceptional cases
where:
(i)
Virement is not possible
(ii)
Provision for the release of additional funds reveals such high degree of urgency that
the release of funds cannot be postponed until a Supplementary Capital Estimate is
approved. If the issue of fund is postponed, it will cause serious injury to the public
interest. The amount to be expended under these Warrants must not exceed the
balance of the Development Fund remaining after all other expenditures provided for
in the Capital Estimate have been incurred.
3.6.8 (g) Development Fund Virement Warrant:
The Warrant permits the issue of additional funds necessary for the completion of a capital
project, for which money already allocated in the Estimate is not enough to complete the
project. There must however be sufficient offsetting savings in the amounts appropriated for
other projects in the same Economic Programmed Section. The limitations imposed for the
issuance of the Development Fund Virement Warrant include:
(i)
Re-allocation can be made only within the same Head of expenditure in the Capital
Estimates.
(ii)
The re-allocation must not give rise to a new principle or policy.
(iii)
It cannot be used to provide funds for new projects.
134
Note that all Warrants are issued in two copies. The original copies are forwarded to the
Accountant-General of the Federation and the duplicate copies to the Auditor-General for the
Federation. A notification to the effect that a Warrant has been issued shall also be published
in the Federal Office Gazette.
4.0
SUMMARY
In this unit you learnt about the different types of government expenditure, recurrent/revenue
expenditures and capital or development expenditures. You also learnt that before
government departments would spend any moneys, these moneys would have to be requested
for and approved or authorised by the legislature..
A Warrant is a document used by the Ministry of Finance to authorise moneys to be released
for spending by government departments and agencies. The expenditures of government are
made under various forms of authorisations known as Recurrent Expenditure Warrants and
Specific or Capital Expenditure Warrants. Without such a warrant the Accountant-General
shall not accept in his accounts any charge upon the Consolidated Revenue Fund.
5.0
CONCLUSION.
In this unit, you learnt that the authority of the Minister of Finance shall be conveyed in one
of the following forms of recurrent expenditure warrants: (a)
Warrant,(b) Annual General Warrant,(c)
Provisional
General
Supplementary General Warrant, (d) Reserved
Expenditure Warrant, (e)Contingencies Warrant, (f) Statutory Expenditure Warrant, (g)
Establishment Warrant, and (h) Virement Warrant
You also learnt that the authority of the Minister of Finance is conveyed in one of the
following forms of capital expenditure warrants: (1) Provisional Development Fund General
Warrant, (2) Development Fund General Warrant, (3) Development Fund Supplementary
General Warrant, (4) Development Fund Reserved Expenditure Warrant, (5)Development
Fund Supplementary Warrant, (6) Development Fund Special Warrant, (7) and Development
Fund Virement Warrant.
135
6.0
TUTOR MARKED ASSIGNMENT
1
Discuss the expenditure authorisation procedures of the Federal Government
2
Discuss the concept of warrant as used in government financial management
7.0
REFERENCES/FURTHER READINGS
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition
3, Lagos: Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
136
UNIT 3 FINANCIAL CONTROL IN GOVERNMENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
The concept of financial control
3.2
Objectives Of Financial Control
3.3
Types of control
3.4
The Executive Control
3.5
The Legislative Control
3.6
Auditor-General for the Federation
3.7
Minister of Finance Control
3.8
Controls by Warrants
3.9
The Treasury Control - Office of the Accountant-General of the Federation
(OAGF)
3.10
Inspectorate Division
3.11
Internal Audit
3.12
Departmental Control over the Budgeted Expenditure
3.13
Accounting Officers Control
3.14
Public Accounts Committee
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/ FURTHER READING
137
1.0
INTRODUCTION
In the previous units, you learnt about Government revenue and expenditure. In this unit, you
will be introduced to financial controls in government. You will learn about the different
types of financial controls in government and how they operate to ensure that financial
resources are obtained at cost considered to be economical and utilized efficiently and
effectively for the attainment of established objectives.
2.0
OBJECTIVES
After reading this unit, you should be able to:
1
Identify the different types of financial controls in government
2
Identify the areas and means of executive control
3
Identify the various legislative financial control tools
4
Identify the types of controls exercisable by the Auditor-General for the Federation
5
Identify the control activities of Minister of Finance Control and the Treasury
Control - Office of the Accountant-General of the Federation (OAGF)
6
Identify the control activities of Inspectorate Division and the Internal Audit
7
Explain Departmental Control over the Budgeted Expenditure, Accounting Officers
Control and Public Accounts Committee control
3.0
MAIN CONTENT
3.1
THE CONCEPT OF FINANCIAL CONTROL
Control is concerned with the efficient use of resources to achieve a previously determined
objective, or set of objectives, contained within a plan’. It is the measurement and correcting
of activities of subordinates to assure that events conform to plans. Control exists to ensure
that organizational objectives are met through measurement of performance. In connection
with government finance, we can identify two basic groups of control- administrative and
financial control. Administrative control refers to the techniques which have indirect bearing
upon expenditure operation while financial control denote the techniques of control relating
to fiscal control. Financial control is a very important type of control in the management of
government finance. It is the process which ensures that financial resources are obtained at
cost considered to be economical and utilized efficiently and effectively for the attainment of
established objectives. It is the sum total of the work, which guides, directs and interprets the
budget cycle. It covers the activities of the Executive branch, involving finance and the
138
ministries, the audit department and the legislature. In a democratic era, financial control may
operate internally and externally.
Self- Assessment Exercise
1
What do you understand by financial control in government?
3.2
Objectives of Financial Control
Some of the objectives of financial control are:
1.
To serve as a corrective device for altering behaviour or performances
2.
To provide measures for the security and control of inventories
3
To facilitate the control of receipts and disbursement of government funds.
4
To ensure that the documentation of financial transactions are correct and accurate.
5
To serve as a vital tool for capital budgeting and execution.
6
To serve as an informative device on the receipt and utilization of government
financial resources.
Self- Assessment Exercise
1
What are the objectives of financial control?
3.3
TYPES OF CONTROL
The following are the basic controls exercised over Government expenditure:
a) The Executive Control.
b) The Legislative Control.
c) The Ministry of Finance Control.
d) The Treasury Control (Office of Accountant - General of the Federation)
e) The Departmental Control.
f) Office of the Auditor - General for the Federation.
3.4
THE EXECUTIVE CONTROL
The Executive comprises the President, and members of his cabinet members who have the
responsibility for the efficient and effective management and control of the administration of
the country. The executive control government expenditure through the following means:
1.
Determination of monetary fiscal policies in general
2.
Compilation and tentative approval of the Nation’s budget
3.
Appointment of the Auditor-General at all tiers of the government
4.
Issuance of budgetary guidelines
5.
Introduction of the due process.
139
6.
Introduction of e-payment, e-receipt and e-banking system.
7.
Introduction of the Public Procurement and Fiscal Responsibility Act, 2007.
3.5
THE LEGISLATIVE CONTROL
Legislative control comprises of the various measures that Parliament can use for purposes of
controlling the use of public funds. This system of control is very important since Parliament
is an independent body from the Executive. Parliament is known in the British system of
governance as ‘The Controller of the Purse’, meaning the institution which controls the
money of government and the use of the money. The Constitution establishes the
parliamentary authority over public funds and their uses.
Legislative control over public revenue and expenditure is effected through the following:
1.
Approval of the monetary and fiscal policies of the government.
2.
Approval of the government budget
3.
Ratification of the appointment of the Auditor – General of the Federation
4.
Through the Public Accounts Committee (PAC)
The PAC receives the audited public accounts and audited departmental accounts and other
special audit reports, examines and debates the contents and submits its report(s) in the form
of its findings and recommendations to the whole House. Parliament takes action on the
Public Accounts on the basis of the recommendations of the committee.
3.6
AUDITOR-GENERAL FOR THE FEDERATION
According to section 108 of the Financial Regulation 2009, the Auditor –General is the
Officer responsible under the Constitution of the audit and report on the public
accounts of the federation General: including all persons and bodies established by law
entrusted with the collection, receipt, custody, issue or payment of Federal Public
moneys or with the receipt, custody, issue, sale, transfer or delivery of any stamps,
securities, stores or other property of the government of the federation.
He has the power to examine the accounts in any way he deems fit and at the end of the audit,
he is required to write a formal report detailing whether in his opinion:
According to S86 (1) of the 1999 Constitution, the Auditor-General for the Federation shall
be appointed by the President on the recommendation of the Federal Civil Service
Commission, subject to confirmation by the Senate.
140
According to section 109 of the Financial Regulation No 109 of January 2009, the AuditorGeneral shall carry out the following statutory functions financial audit, appropriation audit,
financial control audit, value –for-money audit and indeed any type of financial audit in the
government.
The constitutional functions of the Auditor-General are as follows:
(1)
S. 85 (2): The public accounts of the Federation and of all offices and courts of the
Federation shall be audited and reported on by the Auditor-General to the National
Assembly, and for that purpose he shall have access to all the books, records, returns
and other documents relation to those accounts.
(2)
S. 85 (3): Though the Auditor-General is not authorised to audit the accounts or
appoint auditors for government statutory corporations, commissions, authorities,
agencies, including all persons and bodies established by an Act of The National
Assembly, but the Auditor-General shall:-
(a)
Provide such bodies with;
(i)
A list of qualified and experienced auditors from which the bodies
shall appoint their external auditors, and
(ii)
Guidelines on the level of fees to be paid to the external auditors.
(b)
Comment on their annual accounts and auditors reports thereon.
(3)
S. 85 (4): He shall have power to conduct periodic checks on all government
statutory corporations, commissions, authorities, agencies etc. including all persons
and bodies established by an Act of The National Assembly.
(4)
S. 85(5): He shall, within ninety days of receipt of the Accountant-General’s
Financial Statements, submit his reports to each House of the National Assembly.
Thus the Auditor –General provides financial control though audit of government
accounts
3.7
MINISTER OF FINANCE CONTROL
The Minister of Finance is a political office holder who is appointed by the President. His
appointment, like that of other cabinet Ministers, is subject to ratification by the Senate of
the National Assembly. The constitution confers on him the responsibility for the control and
management of public fund of the Federation.
When Ministries/Departments require money to pay for services, they normally apply to the
Minister of Finance, for such funds. The tradition is that once a year the Ministries and
141
Parastatals present Estimates to cover their needs and requirements which are expected to be
prudent, necessary and reasonable, in accordance with the Financial Regulations and
Appropriation Act. The Minister passes the Consolidated Revenue and Expenditure
Estimates to the President who will present them to the Federal Executive Council for
approval before they are forwarded to the National Assembly as Appropriation Bill.
As part of his control functions, the Minister of Finance carries out the following functions:
1.
He is responsible for the preparation of annual estimates of revenue and expenditure
for the Federal Government.
2.
He is required to formulate all policies related to fiscal matters while the Central Bank
of Nigeria formulates policies relating to monetary matter.
3.
Responsible for the supervision, monitoring and co-ordination of all government
revenue accruing from oil and non-oil resources.
4.
He supervise all matters in connection with allocation of revenue to the three tiers of
government i.e. Federal, State and Local Government.
5.
He issues financial warrants without which the Accountant General cannot release
funds to the ministries and extra- ministerial departments.
6
He receives statutory statement of accounts from the Accountant-General of the
Federation.
3.8
CONTROLS BY WARRANTS
Although the Estimates and Appropriation Acts guide the disbursement of public funds, the
release of money is subject to issuance of relevant Warrants by the Finance Minister, for the
expenditure. The Warrant authorizes the Accountant-General to release fund from the
Consolidated Revenue Fund or Development Fund. The system of Warrant gives the
Executive greater control over the issuance of funds than would be offered by a system
which relies solely on the provisions of the Appropriation Acts.
Warrant is the process used by Ministry of Finance to authorise moneys to be released for
spending by government departments and agencies. The expenditures of government are
made under various forms of authorisations. The authorisations are to ensure that all
payments are made:
142
1.
from available monies for the particular expenditure,
2.
under strict scrutiny of the responsible official of government, and
3.
For the right type of expenditure as authorised by Parliament.
There are two main classes of warrants, to match the two main classes of expenditures, the
recurrent or revenue expenditures, and capital expenditures. Recurrent expenditures are
expenditures that are incurred regularly in the course of the Organization's annual operations,
and are for items or services that are used within the year. Capital expenditures are incurred
not very often, and are incurred to acquire fixed assets. Warrants are therefore grouped as
Recurrent Expenditure Warrants and Specific or Capital Expenditure Warrants. Within these
two main classes, warrants can be provisional, general and various specific warrants.
3.9
THE TREASURY CONTROL - OFFICE OF THE ACCOUNTANT-
GENERAL OF THE FEDERATION (OAGF)
The Accountant-General has overall responsibility for the total expenditure of Government.
His office would keep necessary books of accounts to record all the receipts and expenditure
of the various Ministries and Departments. The Treasury Department exercises some
measure of supervision and checks over the accounting records of the Non-Self Accounting
Units.
The definition and duties of the Accountant-General are specified in section 106 and 107 of
the Financial Regulations No. 72 Vol. 96 2009 edition. According to section 106, the
Accountant-General is the Chief Accounting Officer of the receipts and payments of the
government of the Federation. He is saddled is responsible for the general control, custody
and supervision of all ministries and departments within the Federation. He is responsible for
the preparation of the annual financial statements of accounts of the Nation as may be
required by the Minister of Finance. The Accountant –General is appointed by the President,
on the recommendation of the Federal Civil Service Commission.
Specifically, the Accountant –General has the following powers:
(1)
He has power of unlimited access to all financial documents and records of every
Ministry or Department at all times.
(2)
He has the power to carry out any special investigation, when the need arises, in any
Ministry or Department.
(3)
The Accountant-General has power to demand for and obtain any information and
explanation required to carry out his duties.
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3.10
INSPECTORATE DIVISION
Inspectorate Officers from the Office of the Accountant - General of the Federation visit the
various Ministries and Departments to evaluate the system of internal control. They do this
to ensure that the accounting system and maintenance of various books of accounts conform
to the approved regulations and procedures.
The Inspectorate Department consists of Inspection, Investigation, Board and Losses,
Monitoring and Enforcement divisions. The Inspection Division conduct routine and indepth inspection of the books of accounts of Federal Ministries, Extra-Ministerial
Departments and other Arms of Governments to ensure compliance with rules, regulations,
policy decisions and accounting codes and Internal Audit Guides. It also ensures compliance
with financial rules and regulations; and that there is no misuse of public funds;
The Investigation Division investigates cases of fraud, loss of funds, assets and store items
and other financial malpractices in Ministries/Extra-Ministerial Departments, Agencies and
Parastatals within and outside Abuja. It also investigates reported cases of misappropriation
of funds that resulted in the loss of funds to Government or staff of Government or other
persons for which the Financial Regulations or any other extant rules have been contravened..
The Board and Losses Division carries out Annual Boards of Survey of bank and cash
balances of Ministries, Extra-Ministerial Departments and Agencies. It also carries out
Quarterly Surprise Board of Survey of bank and cash balances of Ministries, ExtraMinisterial Departments of Agencies among other functions.
The Monitoring and Enforcement Division monitors and enforces the implementation of all
approved recommended remedial actions to be taken on all observed lapses as a result of the
inspection and investigation activities in MDAs. It also ensure on the implementation of the
approved recommendations arising from the inspection of accounting books and records of
the various institutions.
Furthermore it ensures that actual remittance of all internally
generated revenue, withholding tax, value added tax, and unspent balances in MDAs
including foreign missions.
3.11
INTERNAL AUDIT
This is another aspect of control exercised in any Organization. The Treasury dispatches
Internal Auditors to the Ministries and Self-Accounting Departments to appraise the
effectiveness of the existing internal checks and report upon any inadequacy discovered.
144
According to section 1701(1) of the Financial Regulation 2009, Internal Audit is a
managerial control which functions by measuring and evaluating the effectiveness of
internal control system in an Organization. The Financial regulation provides that the
Accounting Officer of a ministry or extra-ministerial office and other arms of government
shall ensure that an Internal Audit Unit is established to provide a complete and
continuous audit of the accounts and records of revenue and expenditure, assets, allocated
and unallocated stores, where applicable.
3.12
Departmental Control over the Budgeted Expenditure
A Departmental Vote Expenditure Allocation Book (D.V.E.A. Book) is a record of
payments made and liabilities incurred under the Votes or Funds approved for each
Ministry or Extra-Ministerial Department. A Vote Book is maintained for each Head or
Sub-Head of expenditure. It is an integral part of the Budgetary Control System. The Book
is designed to facilitate vote watching to ensure that expenditure incurred are not in excess
of appropriation. Over-expenditure of departmental vote amounts to reckless use of public
funds and is seriously frowned at by Government.
It is the duty of the Officer who is controlling the Vote to thoroughly investigate, without
delay, payments or charges which appear in the schedules drawn up by the AccountantGeneral, which do not appear in the Vote Books particularly with a view to the prevention
and detection of fraudulent payments.
3.13
ACCOUNTING OFFICERS CONTROL
According to section 111 of the Financial Regulation, the term "Accounting Officer" means the
Permanent Secretary of a ministry or the head of extra-ministerial office and other
arms of government who is in full control of, and is responsible for human, material
and financial resources which are critical inputs in the management of an
organization.
According to Financial Regulation 2009, as part of his management and control function, the
Accounting Officer shall:
(1)
Be responsible for safeguarding of public funds and the regularity and propriety of
expenditure under his control
145
(2)
Observe and comply fully with the checks and balances spelt out in the existing
Financials Regulations which govern receipts and disbursement of Public Funds and
other assets entrusted to his care and shall be liable for any breach thereof; and
(3)
Note that his accountability does not cease by virtue of his leaving office and that he
may be called upon at any time to account for his tenure as Accounting Officer.
3.14
PUBLIC ACCOUNTS COMMITTEE
The 1979 and 1989 Constitutions brought into existence the Public Accounts Committee.
The purpose of the Committee is to expose waste, corruption or inefficiency in the handling
of public funds or projects. It is empowered to examine the audited accounts of the
Federation and those of public offices as well as the Auditor- General's report thereon.
4.0
SUMMARY
This unit discussed financial control in government. Control is concerned with the efficient
use of resources to achieve a previously determined objective, or set of objectives, contained
within a plan’. It is the measurement and correcting of activities of subordinates to assure that
events conform to plans. Control exists to ensure that organizational objectives are met
through measurement of performance. In connection with government finance, we can
identify two basic groups of control- administrative and financial control. Administrative
control refers to the techniques which have indirect bearing upon expenditure operation while
financial control denotes the techniques of control relating to fiscal control. Financial control
is a very important type of control in the management of government finance. It is the process
which ensures that financial resources are obtained at cost considered to be economical and
utilized efficiently and effectively for the attainment of established objectives. It is the sum
total of the work, which guides, directs and interprets the budget cycle.
There are different types of financial controls in government and they include: (a) The
Executive Control, ( b) The Legislative Control, (c) The Ministry of Finance Control, (e) The
Treasury Control (Office of Accountant - General of the Federation), ( e ) The Departmental
Control, (f) Office of the Auditor - General for the Federation.
5.0
CONCLUSION
In this unit, you were taught the various financial controls put in place to regulate the
financial activities of Government. These controls are used to regulate the accounting
officials in charge of various schedules. In the next unit, you will learn about some of the
documents being used.
146
6.0
TUTOR MARKED ASSIGNMENT
1. Briefly discuss any Five financial controls in Government.
2. Discuss the role of Treasury Inspectorate Division in Financial Control?
3. Discuss the role of the Legislature and the Public Accounts Committee (PAC)
in government financial control.
7.0
REFERENCES /FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition
3, Lagos: Corporate Publishers Venture.
Emeni, F.K., Ogiedu, K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
147
UNIT 4
PREPARATION OF VOUCHERS
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Introduction to vouchers
3.2
Payment vouchers
3.3
3.4
3.2.1
Contents of a valid payment voucher
3.2.2
Sub-Accounting Officer’s duties before payment on a Voucher
3.2.3
Loss of payment voucher
Receipt vouchers
3.3.1
Rules guiding the use of Receipt Vouchers
3.3.2
Illustration of receipt voucher
Adjustment vouchers
3.4.1
Adjustment voucher (TF23)
3.4.2
Supplementary journal voucher (SJV)
3.4.3
Principal Journal Voucher (PJV)
3.5
Accounting treatment of loss of government fund
3.6
Salary vouchers
3.6.1 Personal emolument form
3.7
3.6.2
Personal emolument record card
3.6.3
Group register
3.6.4
Salary variation advice
3.6.5
Variation control sheet.
3.6.6
Payroll summary voucher
3.6.7
Advice of deduction from salary
3.6.8
On-payment vouchers
3.6.9
Cheque or cash order form
Integrated personnel & payroll information system (IPPIS)
3.7.1
Objectives
3.7.2 Functions of component OF IPPIS
4.0
5.0
6.0
7.0
SUMMARY
CONCLUSION
TUTOR MARKED ASSIGNMENT
REFERENCES/ FURTHER READING
148
1.0
INTRODUCTION
This unit discusses the use of vouchers in Public sector accounting. It discusses the meaning
and classification of vouchers, the contents of valid payment and receipt vouchers,
respectively. It also discusses the sub-accounting officer’s duties in the payment of payment
vouchers and the treatment of the treatment of the loss of a payment voucher. The unit further
discusses the rules guiding the use of Receipt Vouchers and the accounting treatment of the
loss of government funds. Finally, the unit ends with a discussion of the Integrated personnel
& payroll information system (IPPIS) including the objectives and functions.
2.0
OBJECTIVES
After studying the unit, the student should be able to:
1
Appreciate the meaning and importance of vouchers in the government financial
system
2.
Identify the different types of vouchers
3.
Know the contents of valid payment and receipt vouchers respectively.
4
Understand the sub-accounting officers duties in the payment of payment vouchers
5
Understand the treatment of the loss of a payment voucher
6
Know the rules guiding the use of Receipt Vouchers
7
Know the accounting treatment of the loss of government funds
8
Know the objectives and functions of Integrated personnel & payroll information
system
(IPPIS)
3.0
MAIN CONTENT
3.1
INTRODUCTION TO VOUCHERS
A voucher is a documentary evidence of payment or receipt of money which is available for
future reference, accounting and auditing purposes. It is the document that serves as evidence
of receipt and disbursement of government money with adequate authority and procedures.
FR 601 requires that all payment entries in the cash book/accounts shall be vouched for on
one of the prescribed treasury forms. Vouchers are made out in favourof the person or
persons to whom the money is due. According to FR 601 under no circumstances shall a
cheque be raised or cash paid for services for which a voucher has not been raised. Separate
vouchers are raised for separate sub-heads. Also separate vouchers are raised for the payment
of different services.
149
Vouchers can be classified into four main types.
1.
Payment Vouchers
2.
Receipt Vouchers
3.
Adjustment Vouchers
4.
Journal Vouchers.
3.2
PAYMENT VOUCHERS
These are vouchers that are prepared whenever payments are to be made. They are prima
facie evidence for the disbursement of government funds. They also serve to prove that there
has indeed been payment for goods supplied and services provided for the ministry or
department. Vouchers are prepared when payments are to be made for:i.
Goods that are ordered and supplied to the ministries by contractors
ii.
Goods purchased directly from retailers, wholesalers or manufacturers
iii.
Services rendered to government by the public or other government corporation e.g.
Power Holding Company Plc- the company that generates and supplies electricity
iv.
Services rendered to government by her workers i.e. Civil Servants.
v.
Execution of contract jobs properly awarded to contractors.
vi.
Retirement benefits to retired Civil Servants.
FR 603 provides that the following must be observed in the preparation of a payment
voucher:
1.
All vouchers should be type-written or written in ink. No payment voucher shall be
written in pencil or other erasable forms
2.
Separate voucher should be used for separate head.
3.
Original voucher must be signed in ink while copies should be initialled.
4.
The voucher certificate should be signed separately.
5.
Vouchers must be presented within 90 days of its preparation
6.
The totals of all vouchers shall be written in ink and in words as well as in figures.
7.
No erasures10f any kind, whether in typescript or manuscript or the use of correction
fluid shall be allowed.
8.
A single thick horizontal line is drawn immediately before, and immediately after the
Naira (^) figure where it appears in word.
9.
Spaces shall not be allowed. Where the (^) figure is nil, the word ''''NIL'' shall be
entered in the appropriate space.
10.
No erasures of any kind, whether in typescript or manuscript or the use of correction
fluid shall be allowed. '
150
11.
A single thick horizontal line shall be drawn immediately before, and immediately
after the Naira (^) figure where it appears in word.
12.
Spaces are not be allowed. Where the (^) figure is nil, the word ''''NIL'' shall be
entered in the appropriate space.
13.
All vouchers must be certified by an officer that is authorised to do so.
14.
The voucher must be stamped “Entered in the Vote book” and duly signed by the
officer keeping the vote book.
15.
All vouchers should be marked “Checked and passed” by the checking officer in the
Pay Station
16.
Vouchers must be supported with valid, tenable and authentic supporting documents.
3.2.1 Contents of a valid payment voucher
For a voucher to be valid, it must contain the following features:1.
Date of the voucher
2.
Classification code- i.e. Head/Subhead.
3.
Voucher Number.
4.
Description of Payment i.e. Job done or service rendered.
5.
Name and address of payee
6.
Amount (in words and figures)
7.
Signature of the paying cashier
8.
Cahiers stamp “PAID”
9.
Signature of the payee
10.
Cheque number (where cheque is issued for payment.)
11.
Authority:- Types of warrant that release the money.
- Signature of officer controlling expenditure
12.
Supporting documents:- Local Purchase Order (LPO) – original copy Receipt/Invoice – original copy. - Special Letter of Authority - Delivery Note Tender Certificate (in case of contract)
151
The format of a valid payment voucher is shown below:
LOGO OF FEDERAL OR STATE GOVERNMENT
NAME OF MINISTRY /DEPARTMENT / PARASTATAL
Head…………………………… Station………………………...
Sub-Head…………………………Voucher.No…………………….
Date……………………………… Amount ^………………………..
Name (of payee)…………………………………………………
Address (of payee)………………….
Signature of Accounting officer……………
Self- Assessment Exercise
1
what are the contents of a valid payment voucher?
3.2.2 Sub-Accounting Officer’s duties before payment on a Voucher
FR 611 provides that a Sub-Accounting Officer may not make payment against a voucher
unless:
(a)
It is certified for payment by the officer who is authorised to do so.
(b)
It is stamped "checked and passed for payment at (Name of station) only", and is duly
signed to that effect by the checking officer in the appropriate place on the voucher.
(c)
It is not more than three months since the voucher was signed by officer controlling
expenditure
(d)
It is accompanied by a schedule in the following form:
Departmental ,Office of issue .........................
Schedule ..........
Serial
No.
Of
Date:
....................................
Department PV. NO.
Payee
Amount
^
:
For payment at
K
Total
I certify that tile above vouchers have been entered in my Vote Book and funds are available
therein.
Signature of officer controlling expenditure
152
(e)
The voucher is stamped, "Entered in the Vote Book" and signed by the officer
maintaining or keeping the Vote Book.
3.2.3 Loss of payment voucher
Where a raised payment voucher is missing and confirmed lost, the following procedures
should be followed:
a.
The accounting officer must be notified immediately.
b.
The loss should be investigated considering all circumstances leading to that effect.
c.
The investigation should confirm whether payment against the voucher has been
effected or not.
d.
Where payment has been made, it must be confirmed whether the cash withdrawn is
still in possession of the payee.
e.
Where fraud is suspected and confirmed, the Accounting Officer should consider all
the necessary factors to determine whether a Board of Enquiry should be raised or
not.
f.
Where it is established that there is no loss of cash or fraud has not taken place, the
Accountant General must be forwarded with a detailed report concerning the
circumstances of the loss in the first place by the Accounting Officer of the ministry
or department
3.3
RECEIPT VOUCHERS
These are vouchers raised as evidence for the receipt of government funds and property. The
following documents are used to acknowledge the receipt of government revenue:
a. Printed Government receipts
b. Counterfoil books
c. License
d. Stickers
e. Emblems.
The revenue branch of the accounting section of a ministry /department will render a proper
accounting record of revenue generated during the year by issue of receipts, counterfoil
books, licenses and emblems.
The Accountant-General is responsible for the control of Treasury Receipt Books (T.B.6) and
Revenue Collectors' Receipt Books (T.B.6A). Accounting Officers are responsible for the
control of Receipt and Licence Books and Fixed Fee Tickets. These officers and such others
153
as may be so authorised by the Accountant-General shall maintain their own stock and
distribution Registers and will comply with the principles laid down in this' chapter in respect
of receipt book controlled by them. Accounting Officers are also responsible for the safe
custody of all revenue receipt books and licences tickets that may be released to them.
Receipt and licence books must be printed in the form prescribed by Law or by these
Regulations. All leaflets which are contained in the receipt and licence books will bear serial
and consecutive numbers. Each set of forms (original, duplicate, triplicate and quadruplicate,
as the case may be) will bear the same printed serial and consecutive numbers. FR 1203
provides that:
i.
The Accountant-General is the only officer authorised to place indents with the
Nigerian Security Printing and Minting Company (NSPMC) or its subsidiary for the
supply of Treasury Books 6 and 6A. Every issue made by the NSPMC to the
Accountant-General is accompanied by a Receipt Book Issue Note (RBIN).
The
NSPMC furnishes the Auditor-General with a copy of each issue note (see
Regulation 1206).
(ii)
On no account may revenue earning Receipt-and Licence Books or fixed fee ticket
booklets be obtained from any ,printer other than the Nigerian Security Printing and
Minting Company (NSPMC) or any printer authorized by the Accountant-General of
the Federation.
3.3.1 Rules guiding the use of Receipt Vouchers
FR 1204 TO 1217 provide the following rules for the use of receipt vouchers:
i.
All books received shall be taken on charge in a stock and distribution register in the
prescribed form.
ii.
Receipt shall be recorded in serial order of books, and each book shall be entered
individually. In large offices it may be convenient to use a subsidiary distribution
‘register in addition to the main stock distribution register.
iii.
Request for Treasury Receipts Books shall be submitted as and when necessary to' the
Accountant-General.
iv.
Accounting Officers shall include in their indents the requirements of revenue
collectors under their supervision.
154
v.
All issues by the Accountant- General shall be recorded in' the stock and distribution
register, and will be accompanied by a Receipt Book Issue Note.
vi.
Every issue of a receipt book or books shall be accompanied by a Receipt Book Issue
Note which will be serially numbered and printed in quadruplicate.
v.
Distribution of the four copies of each issue note will be as follows:
(a)
Original and duplicate copy to the officer to whom the issue was made. The
duplicate will be receipted by him and returned to the issuing officer who will
paste same to the quadruplicate copy.
vi.
(b)
Triplicate copy to the Auditor-General,
(c)
Quadruplicate copy shall be retained in the book at the office of issue.
Issuing Officers must ensure .that the duplicate copy of each Receipt Book Issue
Note is receipted and returned without delay and that all triplicate copies are sent to
the Auditor-General immediately.
v.
Federal Pay Officers shall issue (Treasury Receipt Book 6A) to all Revenue
Collectors in their respective states, in line with the laid down procedure in FR 1206.
vi.
Receipt and licence books shall be issued for use in strict serial order.
vii.
Federal Revenue Collectors stationed in a State shall not under any circumstances
request, stock or issue state receipt to account for Federal Government earnings or
revenue.
viii.
Receipt and licence books will not be transferred between Sub-Accounting Officers
without the consent of the Accounting Officer except in special cases of emergency
when the circumstances will be reported to the issuing officer and the procedure laid
down in Regulation 1205 will be followed.
ix.
Except when one Revenue collector is officially relieved by another no used or
unused receipt or licence books shall be transferred between one Revenue Collector
and another except with the approval of the Accountant
x.
All revenue receipts shall be issued to payers in strict serial order and shall not be
altered in any way.
xi.
A defaced or mutilated receipt Iicence leaflet shall be cancelled with the words
"cancelled" endorsed on an copies of such receipts and retained in the booklet for
audit purposes .
xii.
The original receipt or licences leaflet shall be handed over or delivered to the payer.
155
xii.
The duplicate of all receipts and licences (excluding fixed fees. licences and tickets of
the counterfoil type) issued by Sub- Accounting-Officers shall be sent with the
monthly account to the Accountant-General or Accounting Officer.
3.3.2 illustration of receipt voucher
REVENUE RECEIPT
REVENUE COLLECTOR‟S RECEIPT
(LOGO)
Treasury Book No. 6A
FEDERAL GOVT. OF NIGERIA
STATION………………………
DATE………………………………
HEAD………………………………………… R. N. No…………………………..
SUB-HEAD…………………………………..
Receive
from………………………..……………………………………………………………………
Thesumof…………………………………………….………Naira……………………..Kobo
being(descriptionofpayment)…………………………………………..…………..……………
…….……………………………………………………………………………..……………..
……………………………………….
………………………………..
SIGNATURE OR MARK OF PAYER
SIGNATURE
OF
REVENUE
COLLECTOR
____________________________
____________________________
OCCUPATION OF WITNESS
WITNESS TO MARK
Self- Assessment Exercise
1
what are the contents of a valid receipt voucher?
156
3.4
ADJUSTMENT VOUCHERS
Adjustment vouchers are used for the following purposes:a.
Effecting payment for services rendered by one ministry/department to another.
b.
Adjusting wrong posting of transactions in respect of expenditure and revenue heads
or subheads.
c.
Reclassification of transactions.
d.
Allocation of unallocated stores.
FR 901 states that adjustments are effected by means of Journal entries which enable
transfers to be made from one account to another without actual receipt or payment of cash.
Examples of these
are adjustments between expenditure or revenue sub-heads, correction
of accounting errors arising from misclassifications and the ultimate allocation of Un
allocated Stores.
FR 902identify the following types of adjustment vouchers shall include the following:
(a)
Adjustment Voucher (TF23)
(b)
Supplementary Journal Voucher (SJV)
(c)
Principal Journal Voucher (PJV)
3.4.1 Adjustment voucher (TF23)
The Adjustment Voucher (TF 23) which is designed to adjust inter-ministerial transactions is
mostly used in ministries, extra-ministerial offices and other arms of government.
Adjustments are submitted on Treasury Form 23 in quadruplicate, or as otherwise directed.
Two copies of the voucher must be signed in full. The ministry, extra-ministerial office or
other arms of government which is receiving the adjustment voucher stamps and returns one
of the fully signed vouchers as evidence of acceptance or rejection.
3.4.2 Supplementary journal voucher (SJV)
This is used under the following circumstances:
(a)
Where transfers and adjustments are to be made before the below-the-line statement is
extracted.
(b)
Where differences are discovered between the ministries/departments transcript
posting and bank statement received.
(c)
Where there is need to re-classify accounts into suitable heads and subheads before
the trial balance is prepared.
157
3.4.3 Principal Journal Voucher (PJV)
PJVs are prepared for the following reasons:
(a)
To correct misclassification of accounts detected by the main accounts.
(b)
To adjust the accounts e.g. when funds" rightfully belonging to one state have been
wrongly credited.to another.
(c)
Effect month-end transfer of accounts from Above-the-line Accounts to Below-theline Accounts; and
(d)
Effect annual transfers.
3.5
ACCOUNTING TREATMENT OF LOSS OF GOVERNMENT FUND
Where it is confirmed or established that there has been loss of cash due to embezzlement,
armed robbery, fraud or failure to receive an advance granted or collect revenue for service
rendered, adjustment vouchers are not raised. Such losses are charged to Non-Personal
Advance account by preparing payment voucher.
According to the Financial Regulation, the type of accounting entry required for the treatment
of such losses however depends on the following:a.
Nature of the loss
b.
Date of the transaction which led to the loss.
c.
Date on which the loss occurs.
d.
Date of passing the entries
e.
The type of fund involved
S/N Description
Dr
1.
Non –personal Cash A/c
Loss of cash
Cr
Advance A/c
2.
Fraudulent payment or overpayment made and Non –personal Relevant
discovered within the current financial year
3.
Advance A/c
Fraudulent payment or overpayment in previous Advance A/c
Sub-head
Sundry
Revenue financial year charged to Consolidated
Revenue (CRF) or Development Fund (DF)
4.
Fraudulent payment or overpayment made in Advance A/c
Non-
previous financial year charged against public fund
personal A/c
other than CRF or DF
originally
debited
158
5.
Abandonment of the recovery of an amount or Loss Advance A/c
Advance A/c
of Fund initially charged to an advance account
6.
Overpayment not involving fraud made in a previous No adjustment
financial year charged against CRF or DF
required but the
loss
will
be
recognised
by
the AccountantGeneral.
the
AccountantGeneral
7.
Abandonment of recovery of advances issued Same as above
initially from Re-current expenditure
8.
Abandonment of the recovery of unpaid revenue
Same as above
Illustration 1
A double payment was made to MR Jones Agbi, a supplier of office consumables to the
Labour and Productivity on September 20, 2012. The amount involved was ^1,000,000 and
the discovery were made on November 25 of the same year.
You are required to journalize the discovery.
Solution to illustration 1
This is an overpayment made and discovered within the same year.
Dr
Cr
^
^
1,000,000
Non-Personal Advance A/C
Ministry of Works/Housing 402/07
1,0000,000
(Being overpayment for the supply of office consumables).
Illustration 2
The case is similar to the one in illustration above but the overpayment was not discovered
until April 1, 2014. You are required to journalize the discovery.
159
Solution to illustration 2
Non-Personal Advance A/C
Dr
Cr
^
^
1,000,000
Revenue Sundries A/c
1,000,000
Illustration 3
A sum of ^3,200,000 was fraudulently withdrawn from Research Foundation in December
2009. It was not discovered until October 2010. You are required to journalize the discovery.
Solution to illustration 3
Non-Personal Advance A/c
Dr
Cr
^
^
3,200,000
Research Foundation A/c
3,200,000
Illustration 4
The following discoveries were made by the Accountant-General of Udo State while carrying
out a special check on the books of accounts of the State.
(i) On 4th May, 2010, the sum of ^450,000,000 was fraudulently withdrawn from Udo State
and charged to CRF. The fraud was discovered on 23rdth February, 2012.
(ii) On 27th of June, 2013, an overpayment of ^1,550,000 was made to Leeway Services Ltd
in respect of supply of furniture to the new Government House built by the former
administration. This was discovered on 31st November of the same year.
(iii) On 30th October, 2013 an amount of ^545,000 being the revenue accruable to the State
Government from rent of her property but never received was abandoned.
iv) On 23rd of October 2013, an officer died while in active service and the aggregate of his
pension and gratuity was ^180,300 while he had an outstanding motor vehicle advance of
^280,550.
160
v). On 12th of November 2011, the sum of ^75,000 which was initially charged to
Newspapers and Periodicals advance had been abandoned.
You are required to journalize the transactions and discoveries made above.
Solution to illustration 4
Dr
Cr
^
^
450,000,000
450,000,000
i.
Non-Personal Advance A/c
Consolidated Revenue Fund A/c
Being an amount fraudulently withdrawn from State
Accounts and charged to CRF
ii. Non-Personal Advance A/c
1,550,000
Ministry of Works & Housing
Being over-payment for the supply of furniture
iii. No. Adjustment Required
Note: The abandonment of the recovery must be registered
by Accountant-General for the State as a loss.
iv. Loss of Fund A/c
100,250
Motor Vehicle Advance A/c
Being an outstanding advance found to be irrecoverable
and written off.
v. Loss of Fund A/c
75,000
Newspapers and Periodicals Advance A/c
Being an amount charged to advance account and now
abandoned
3.6
1,550,000
100,250
75,000
SALARY VOUCHERS
The account documents and records required to be prepared and maintained in the Personal
Emolument Section of the Ministry/Department as regards payment of salaries and wages
are:a.
Personal Emolument Form
b.
Personal Emolument Record Card
c.
Group Register
d.
Salary Variation Advice
e.
Variation Control Sheet
f.
Payroll Summary Voucher
g.
Advice of Deduction from Salary
h.
On-Payment Voucher
161
i.
Cheque or Cash Order Form
3.6.1 Personal emolument form
This is the form that confirms that an officer is still in service as at the beginning of the year.
The Personal Emolument Form is filled and sent by Sectional Heads to all Departmental
heads at the beginning of the year. It contains the grade level and post of the officer.
ILLUSTRATION OF PERSONAL EMOLUMENT FORM
LAGOS STATE GOVERNMENT
MINISTRY OF TRAINING AND ESTABLISHMENT
PERSONAL EMOLUMENT FORM (PEF)
NAME:
ALABI
Surname
JOHNSON
First Name
ADEKOLA
Other Name
ADDRESS:
18, SHOWUMI STREET, BARIGA
DEPARTMENT:
TRAINING
LAST POST HELD: SENIOR ACCOUNTS CLERK
NEW POST ACCORDED:
ACCOUNT SUPERVISOR
LAST GRADE LEVEL:
07
NEW GRADE LEVEL:
08
_______________________ ______________________
HEAD OF DEPARTMENT
SIGNATURE
3.6.2 Personal emolument record card
This is required to be kept in respect of every officer in the civil service. Any change that
affects the remuneration of an officer will be entered in the Personal Emolument Record
Card. It contains the new salary scale in the event of promotion or increment. It also contains
deductions as regards servicing of advances.
3.6.3 Group register
This is maintained to record the names of all civil servants within a ministry or Department.
It serves as a control against the insertion of ghost workers in the payrolls. It contains the
Personal Emolument Card No, the name of the officer, rank and date registered. The number
in the register should correspond with the control number in the Personal Emolument Card.
162
3.6.4 Salary variation advice
This is used by the Personal Emolument Department of the ministry to inform the Account
Section about any changes affecting the salary of an officer. It is issued when an officer is
being promoted, retired, suspended, dismissed or transferred. Five copies would be prepared
and distributed to the following sections/files:
1
Payroll Section
2
Variation Control Section
3
Internal Audit Section
4
Variation Control File
5
Officer’s Personal File.
3.6.5 Variation control sheet.
This is prepared by the variation control section to serve as control over the payroll prepared
by the salary section. It is a record that is maintained to show each variation in the month of
emoluments, taxable allowances and the deductions from emolument for each officer. The
aggregate of these variations will be summed up or subtracted from the relative aggregate of
that of the previous month. The figure arrived at after the addition or subtraction will
determine the total emoluments, taxable allowances and other types of deductions to be
effected in the current month’s salary.
3.6.6 Payroll summary voucher
It is the form used to sum up the various columns or the separate payrolls. The total obtained
is compared with that on the Variation Control Sheet.
3.6.7 Advice of deduction from salary
This is a form used to cover any deduction made from salary of an officer e.g. taxes, union
dues, advances etc. It is prepared by the Sectional Head and sent to the salary section. The
purpose is to notify the salary section of the deduction to be made from the salary of an
officer for the period.
3.6.8 On-payment vouchers
These are vouchers raised at the personnel department of the salary section in respect of
deductions that have been made from salary and are payable directly to other authorities e.g.
NSITF, National Housing Fund, Union Dues, Taxes etc.
3.6.9 Cheque or cash order form
163
This is a form that usually accompanies a prepared payroll and payment voucher when cash
is to be obtained from the Federal Pay Office for the payment of salaries.
3.7
INTEGRATED PERSONNEL & PAYROLL INFORMATION SYSTEM
(IPPIS)
IPPIS was conceived by the Federal Government (FGN) to improve the effectiveness and
efficiency in the storage of personnel records and administration of monthly payroll in such a
way to enhance confidence in staff emolument costs and budgeting.
3.7.1 Objectives
1.
Facilitates planning: having all the civil service records in a centralised database will
aid manpower planning as well as assist in providing information for decision
making.
2.
Aid Budgeting: An accurate recurrent expenditure on emolument could be planned
and budgeted for on a yearly basis.
3.
Monitor the monthly payment of staff emoluments against what was provided for in
the budget.
4.
Ensure database integrity so that personnel information is correct and intact.
5.
Eliminate payroll fraud such as ghost workers syndrome.
6.
Facilitate easy storage, updating and retrieval of personnel records for administrative
and pension processes
MDAs are Ministries Department and Agencies within the Civil Service where the IPPIS will
be implemented. Six MDAs selected in the pilot phase of the project are:
1. Federal Ministry of Education
2. Federal Ministry of Finance
3. Federal Ministry of Foreign Affairs
4. Federal Ministry of Information
5. Federal Ministry of Works
6. National Planning Commission
3.7.2 Functions of component OF IPPIS
1.
Data captive equipment with fingerprint scanners for biometric enrolment and camera
for employee photograph.
2.
Each of the pilots MDA can capture, update and process their personnel records.
164
3.
There are presently about 30,000 civil servants from the pilot MDAs whose records
and biometric data have been captured, verified and stored in the centralized
personnel database of IPPIS.
4.
Salaries are now paid directly into the bank account of civil servants whose records
exist in the IPPIS database
5.
Third party agencies like FIRS, SBIR, PENCOM and Cooperative Societies also
receive their payments directly.
4.0
SUMMARY
In this unit you have learnt about the use of vouchers. A voucher is a documentary evidence
of payment or receipt of money which is available for future reference, accounting and
auditing purposes. It is the document that serves as evidence of receipt and disbursement of
government money with adequate authority and procedures. FR 601 requires that all payment
entries in the cash book/accounts shall be vouched for on one of the prescribed treasury
forms. Vouchers can be classified into four main types:(1)Payment Vouchers, (2) Receipt
Vouchers, adjustment Vouchers, and (4) Journal Vouchers.
Payment vouchers are vouchers that are prepared whenever payments are to be made. They
are prima facie evidence for the disbursement of government funds. They also serve to prove
that there has indeed been payment for goods supplied and services provided for the ministry
or department. A valid voucher must contain: (1) date of the voucher, (2) Classification code,
(3) Voucher Number, (4) Description of Payment (5)
Name and address of payee, (6)
Amount (in words and figures), (7) Signature of the paying cashier, (8) Cahiers stamp
“PAID” , (9) Signature of the payee, (10) Cheque number ,(11)
warrant that release the money,
Authority:-
Types
of
Signature of officer controlling expenditure, and (12)
Supporting documents:- Local Purchase Order (LPO) – original copy - Receipt/Invoice –
original copy. - Special Letter of Authority - Delivery Note -
Tender
Certificate
(in
case of contract)
Receipt vouchers are vouchers raised as evidence for the receipt of government funds and
property. The following documents are used to acknowledge the receipt of government
revenue: (a) Printed Government receipts, (b) Counterfoil books, (c) License, (d) Stickers,
and (e) Emblems.
Adjustment vouchers are used for the follow: (a)
Effecting payment for services rendered
by one ministry/department to another, (b) Adjusting wrong posting of transactions in respect
165
of expenditure and revenue heads or subheads, (c) Reclassification of transactions, and (d)
Allocation of unallocated stores.
FR 902 identify the following types of adjustment vouchers shall include the following:(a)
Adjustment Voucher (TF23), (b)Supplementary Journal Voucher (SJV), and (c) Principal
Journal Voucher (PJV).
5.0
CONCLUSION
In this unit, you have learnt about the various types of vouchers. You also learnt about the
treatment of loss of items in the store. The functions and objectives of Integrated personnel
and payroll information system were also discussed.
6.0
TUTOR MARKED ASSIGNMENT
1
Discuss the Sub-Accounting Officer’s duties before payment on a Voucher
2
What are rules guiding the use of Receipt voucher?
3
What are the objectives and functions of the Integrated personnel & payroll
information system (IPPIS)?
7.0
REFERENCES/ FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition
3, Lagos: Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
166
UNIT 5
THE CASH OFFICE
MAIN CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
The cash office or pay office
3.2
Essential features of a cash office
3.3
Functions of the cash office
3.4
Books of accounts maintained in the cash office
3.5
Types of the cash book
3.5.1
The treasury cash book
3.5.2
Revenue collector’s cash book
3.6
Drawing of cash from bank
3.7
Cheque summary register
3.8
Cash control measures
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/ FURTHER READING.
1.0
INTRODUCTION
In this unit, you will learn about the cash office in the public sector. You will also learn about
the essential features of a cash office, the functions of the cash office and books of accounts
maintained in the cash office. The procedures for the drawing of cash from the bank and the
various cash control measures will also be discussed in this unit.
2.0
OBJECTIVES
After studying this unit, the should be able to:
1.
Know the Essential features of a cash office.
2.
Know the functions of the cash office
3
Know the Books of accounts maintained in the cash office and the different types of
the
cashbook
4.
Appreciate the procedures for the drawing of cash from the bank.
5.
Appreciate the various cash control measures.
167
3.1
THE CASH OFFICE OR PAY OFFICE
The general duties of the Pay Office are mainly the receiving and payment of cash, the
keeping of cash books to record all the cash transactions and the operation of a Bank Account
on which cheques are drawn and providing information on the cash position at a given date.
Security is essential in the management of Pay Office duties and this includes provision of a
Cashier's cage and partition to ensure that only staff of that office and other authorized
persons can move in and out of the Pay Office. Effective internal check system is also of
utmost importance in the operations in the Pay Office to minimize fraud and loss of funds.
Up-to-date recording of transactions and regular supervision by checking of records must be
carried out to eliminate chances that might be exploited leading to theft, etc. The Cash Office
is thus a very sensitive department in an establishment and as such only diligent, trustworthy,
hardworking, and experienced and security conscious personnel should be put in charge.
3.2
ESSENTIAL FEATURES OF A CASH OFFICE
Flowing from the above description of the Cash office, the following peculiar features exist
in a typical cash office
1
Paying cage or cubicle.
2
Notice to the public showing working hours in the office.
3
Cash tank or Safe with dual control keys.
4
Notice of restriction of entry by non staff or unauthorized person.
5
Security personnel.
6
A Close Circuit Monitor.
7
Security Alarm device.
8
Counting Machine.
9
Mercury light.
10
Computer System.
11
Fire Alarm.
3.3
FUNCTIONS OF THE CASH OFFICE
The basic functions of the Treasury cash office are:
1.
Receipt and payment of liquid cash.
2.
Safe custody of cash.
3.
Maintenance of a conventional cash book to record all cash transactions.
4.
Operation of the Ministry/Departments current account on which cheques are drawn.
168
5.
Balancing of cash book transactions on daily basis.
6.
Reconciliation of bank statement balances with cash book balances monthly or as at
when required.
7.
Submission of original cash book and all copies of vouchers to the accounts
department. This is required for the preparation of final accounts.
3.4
BOOKS OF ACCOUNTS MAINTAINED IN THE CASH OFFICE
In order to effectively and efficiently carry out its function, the cash office is required to
maintain the following books of accounts:
i.
Treasury Receipt Book.
ii
Cheque Summary Register.
iii
Bank Teller
iv
Cash Book
v
Cheque Book
v
Cheque Dispatch Register
vi
Payment Voucher Register
vii
Paper Money Register e.g. dividend warrant, stamp, money order, postal order e. t. c.
viii
Pay-in Form.
ix
Dishonored Cheque Register
X
Safe Content Register
Self- Assessment Exercise
1. What are the books of account expected in a cash office?
3.5
TYPES OF THE CASH BOOK
There are three types of cash book kept in the ministry. They are:
i.
The Treasury Cash Book
ii.
The imprest Cash Book
iii.
Revenue Collectors Cash Book
3.5.1 THE TREASURY CASH BOOK (TF15a)
This is the main accounting book of original entry. The Treasury Cash Book is used in
recording all receipts and payments of any nature whether belonging to above the line or
below the line accounts. Both revenue and expenditure are entered in the cash book. The cash
book is divided into two sections. The right side contains all payments while the left side
contains record of receipts. Each side consists of eight columns.
169
Cash Books are posted to reflect the transactions of each day and balancing is effected same
day. The ruling of the Cash Book provides columns for cash transactions, bank transactions
and total amount on the receipt side and for Gross Amount, Deductions and Net amount
payable on the payment side. Balancing of petty cash transactions are done separately from
that of bank transactions and the balances of the two are not mixed up.
Receipts issued are posted on the left hand side of the Cash Book. The particulars of the
Serial Number, the Payee and the classification are to be entered. If the amount is received
through a bank teller or supported by a Bank Advice, it is posted in the Bank Column and
extended to the Total Column. If the amount received is in cash, it is entered in the Cash
Column and also extended to the Total Column.
For payments, the voucher is entered along with the payee, the classification of the
transaction, the payee's bank’s where applicable, and the number of the cheque issued in
payment. The amount is entered in the Gross Amount Column, deduction, if any, or cash paid
goes into the next column and the net amount or amount on cheque issued is extended into
the last column. A receipt is issued for any deduction made on a payment voucher and the
receipt is posted on the column for cash on the left side of the Cash Book.
A separate Petty Cash Book may be maintained and this allow for responsibilities to be
assigned for control and convenience. Cash balances on daily basis are confirmed by
specification of physical cash retained in the Safe or Cash Tank and thin must- checked and
certified by the head of the cash office before locking up after closing hours.
Where more than one cash book is maintained for bank transactions, one of the Cash Books
is designated the main one into which total transactions in the other Cash Books will be
transferred for balancing. A Summary Cash Book may is necessary where many Cash Books
are in use. The total transactions from each of the other Cash Books will be transferred into
the Summary Cash Book. This Summary Cash Book will be the only one to balance
aggregate of transactions for the day and to record balances brought forward and carried
forward.
170
FORMAT OF A TREASURY CASH BOOK (TF15a)
ILLUSTRATION 1
The following extracts were obtained from the books of the Ministry of Works for the month
of July, 2016.
^’000
(i) Balance b/d from June 2016 -
Bank
Cash
3,300,000
75,600
(ii) A. Allocation for Recurrent Expenditure
B. Allocation for Capital Expenditure
(iii)
^’000
17,000,000
23,000,000
Final payment for the supply of furniture 211/12 (FBN cheque no.
003816 Issued)
9,200,000
(iv)
Payment of staff salaries (FBN cheque no. 0041116)
8,000,000
(v)
Deductions made from salaries:
Advances- Salary 15/16
30,000
Advances-Motor Vehicles
15/8
130,000
Ad advances-Correspondence
15/3
120,000
Surcharge of Senior Officers
11/7
100,000
(vi)
Repairs of Motor Vehicles
18/7- LKJ Motor (Cheque no. 001816 16,000
(vii)
Payment for electricity 23/8(FBN Cheque no. 004416)
171
194,000
8. Total
Bank or Net
Deduction or Cash
Gross Amount
Cheque No
Payee Bank
Head/Subhead
Dept No
To whom Paid
2. From
Classification:
Treasury No or
Total Amount
Bank
Cash
No on Bank Slip
No issued
Treasury Receipt
Head/Subhead
Classification:
Received
Voucher No
From Whom
MINISTRY/DEPARTMENT/STATION…………….DATE……………….
(viii)
Maintenance of office building
23/2 (FBN Cheque no. 001616
128,000
Required: Post these transactions into the Treasury Cash Book of the Ministry for the month
of November, 2009.
CASH
BANK OR NET
DEDUCT OR
AMOUNT
CHEQUE NO
PAY BANK
CLASIFICATION
TO WHOM
TREASURY NO.
^
^
^
Bal b/d
75,
3,300
3,375,6
Sup
211 F
003
9,200
9,200
Exp.
60
,000
00
ply
/12
816
,000
,000
Allocation
0
GROSS
TOTAL
AMOUNT
BANK
NONO
RECEIPT
BANK SLIP
N
TREASURY
CLASSIFICATIO
CASH
Sept ,2009
FROM WHOM
VOUCHER NO
SOLUTION
^
of
B
^
^
N
Fur
nitu
re
Recurrent
17,00
17,000,
Sala
F
411
8,000
380, 7,620
Expenditu
0,000
000
ries
B
6
,000
000
re
,000
N
Capital
23,00
23,000,
Rep
18/
F
181
116,0
116,0
Expenditu
0,000
000
air
7
B
6
00
00
re
of
N
Mot
or
Veh
icle
s
Elec
18/
F
441
194,0
194,0
trici
7
B
6
00
00
ty
N
Mai
23/
F
161
128,0
128,0
nt.
2
B
6
00
00
N
Bal
172
25,73
75,6 26,04
c/d
7,600
00
75,
43,30
43,375,
43,37
75,6 43,30
60
0,000
600
5,600
00
0
Oct. 2009
Balance
75,
26,04
25,737,
b/d
60
2,000
600
0
*Represents deductions not cash flow and not considered in the balance carried forward.
3.5.2
REVENUE COLLECTORS CASH BOOK
A Revenue Collector is a government officer in possession of an official receipt book
TF6 or TF6A or any other receipt books for the collection of specified items of the
revenue provided for in the approved budget.
FORMAT OF A REVENUE COLLECTORS CASH BOOK
MINISTRY/DEPARTMENT:…………..
DATE:………………
DR
Date
CR
Revenue
Classification
From
Receipt
Head
Whom
Subhead
No
3.6
2,000
Amount
Date
Treasury
Receipt
No
DRAWING OF CASH FROM BANK
When it is necessary to draw cash from bank, a cheque is issued for the amount after due
authorization processes but without raising a payment voucher. The cheque is posted as
payment in the bank column of the Cash Book as "Cash Drawn from Bank" and will not
have any number as the posting of a payment voucher. On receipt of the amount from the
bank the amount will be posted as a receipt in the Cash Column or into the Petty Cash
Book and as an addition to Cash hold in the Pay Office. After closing the Cash Book at
173
0,000
the end of the day, the amount, or any balance, if part of it has been used, is included in
the physical cash to be certified as balance being carried forward to the following day.
Where substantial amount of physical cash is held and it is desired to pay part of it to the
bank, a Teller or Paying-in form will be completed and posting will be a payment in the
Cash column or in the Petty Cash Book and the Teller will be posted as a receipt in the
Bank Cash Book. No payment voucher or a receipt is to be issued to cover the transaction
since both are 'contra' entries recording movement of physical cash to or from the Bank
Account of the Ministry/Department.
Where it is necessary to keep a cash float of substantial amount in the office for urgent
transactions, withdrawal of cash from bank will follow the same processes stated above.
The amount will also be recorded as physical cash in total sum in support of the balance
being carried forward in the Cash Book. Custody of such a float should be in a safe or
cash box with double locks or in a strong room to ensure dual control and responsibility
for the safety and accounting for the float. A cash float register or imprest cash book is
also kept. Each withdrawals and receipts must be signed for. It should be noted that the
balance in the Cash float register is part of the total cash balance in the Petty Cash Book.
3.7
CHEQUE SUMMARY REGISTER
The Cheque Summary Register serves as a useful record for the balancing of bank
transactions in the Cash Book. All cheques issued and all receipts into the Bank Account,
all vouchers raised to cover bank advices, tellers of all payments to Bank and any other
bank transactions as may be recorded in the Cash book are posted into the Cheque
Summary Register. It be balanced everyday with balances brought forward and carried
forward recorded. These balances must agree with the cash book. As an internal check,
the person posting the Cheque Summary Register should not be the same person posting
the Cash Book. The Cheque Summary Register should also be cheeked by the Head or
the Pay Office.
3.8
CASH CONTROL MEASURES
Cash control means the actions to be taken to ensure that all government income is
collected on as and at when due and also to ensure that fraud is prevented in the process of
cash management. Some of the usual cash control measures in the cash office are:
174
1. Establishment of 'authority limit.'
2. Establishment of cash limits.
3. Daily banking of all takings.
4. Cash survey or surprise cash count
5. Dual control of the safe. This means that it takes at least two staff to open the safe
Installation of 'red alarm'.
6. Investment of idle funds
7. Regular balancing of the Cash book.
8. Preparation of bank reconciliation statements.
Self- Assessment Exercise.
1.
4.0
List the cash control measures expected in a cash office.
SUMMARY
In this unit, you have learnt about the cash office and its operations in the public sector. The
general duties of the Pay Office are mainly the receiving and payment of cash, the keeping of
cash books to record all the cash transactions and the operation of a Bank Account on which
cheques are drawn and providing information on the cash position at a given date. Security is
essential in the management of Pay Office duties and this includes provision of a Cashier's
cage and partition to ensure that only staff of that office and other authorized persons can
move in and out of the Pay Office. Effective internal check system is also of utmost
importance in the operations in the Pay Office to minimize fraud and loss of funds. Up-todate recording of transactions and regular supervision by checking of records must be carried
out to eliminate chances that might be exploited leading to theft, etc. The Cash Office is thus
a very sensitive department in an establishment and as such only diligent, trustworthy,
hardworking, and experienced and security conscious personnel should be put in charge.
There are three types of cash book kept in the ministry: (1) Treasury Cash Book, (2) the
imprest Cash Book, and (3) Revenue Collector’s Cash Book. The Treasury Cash Book the
main accounting book of original entry. The Treasury Cash Book is used in recording all
receipts and payments of any nature whether belonging to above the line or below the line
accounts. Both revenue and expenditure are entered in the cash book. The cash book is
divided into two sections. The right side contains all payments while the left side contains
record of receipts. Each side consists of eight columns. The
175
Revenue Collector
is a
government officer in possession of an official receipt book TF6 or TF6A or any other receipt
books for the collection of specified items of the revenue provided for in the approved
budget. He uses the Revenue Collector’s cash book for this
When it is necessary to draw cash from bank, a cheque is issued for the amount after due
authorization processes but without raising a payment voucher. The cheque is posted as
payment in the bank column of the Cash Book as "Cash Drawn from Bank" and will not have
any number as the posting of a payment voucher. On receipt of the amount from the bank the
amount will be posted as a receipt in the Cash Column or into the Petty Cash Book and as an
addition to Cash hold in the Pay Office. After closing the Cash Book at the end of the day,
the amount, or any balance, if part of it has been used, is included in the physical cash to be
certified as balance being carried forward to the following day.
The Cheque Summary Register serves as a useful record for the balancing of bank
transactions in the Cash Book. All cheques issued and all receipts into the Bank Account, all
vouchers raised to cover bank advices, tellers of all payments to Bank and any other bank
transactions as may be recorded in the Cash book are posted into the Cheque Summary
Register. It be balanced everyday with balances brought forward and carried forward
recorded. These balances must agree with the cash book. As an internal check, the person
posting the Cheque Summary Register should not be the same person posting the Cash Book.
The Cheque Summary Register should also be cheeked by the Head or the Pay Office.
5.0
CONCLUSION
In this unit, you have learnt about the various cash control measures put in place to ensure
that all government income is collected on as and at when due and also to ensure that fraud is
prevented in the process of cash management. Some of the usual cash control measures in
the cash office are: (1)Establishment of 'authority limit, (2) Establishment of cash limits, (3)
Daily banking of all takings, (4) Cash survey or surprise cash count, (5) Dual control of the
safe. This means that it takes at least two staff to open the safe Installation of 'red alarm, (6)
Investment of idle funds, (7) Regular balancing of the Cash book, and (8) Preparation of bank
reconciliation statements.
6.0
TUTOR MARKED ASSIGNMENT
1.
State four functions of the cash office.
2.
Explain the cash control measures in a typical cash office.
176
3.
What are the essential features of a cash office?
7.0
REFERENCES/FURTHER READING
Emeni, F.K., Ogiedu, K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited.
ICAN (2009) Public sector accounting for accounting technicians scheme of WEST AFRICA
(ATSWA): Study pack, Lagos: ICAN
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
177
UNIT 6
BANK RECONCILIATION
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Bank reconciliation
3.2
Need and Importance of Bank Reconciliation
3.3
Reasons for disagreement between the cash book and bank statement
3.4
Preparation of bank reconciliation statement
3.4.1
Preparation of only bank reconciliation statement
3.4.2
Format for bank reconciliation when the bank statement balance is
known
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/ FURTHER STUDY
1.0
INTRODUCTION
In this unit, you will learn about bank reconciliation in the public sector, it’s need and
importance. You will also learn the reasons for disagreement between the cash book and bank
statement. Furthermore, the two methods of preparing bank reconciliation statements will be
discussed.
2.0
OBJECTIVES
After reading this unit, the student should be able to:
1
To appreciate the concept of bank reconciliation.
2
Understand the need and importance of Bank Reconciliation
3.
Identify the reasons for disagreement between the cash book and bank statements
4
Understand the preparation of bank reconciliation statements
178
3.1
BANK RECONCILIATION
The balance of the bank column in cash book represents the customer’s cash balance at bank.
It should be the same as shown bank statement on any particular day. For every entry made in
the cash book if there is a corresponding entry in the pass book (maintained by the banker) or
vice versa, the bank balance will be the same in both the books. However, it must be noted
that the cash book and the banks account are maintained by two different parties and hence it
is not certain that entry in one book will always have a corresponding entry in the other.
Normally entries in the cash book should tally (agree) with those in the bank statement and
the balances shown by both books should be the same. But in practice, the balances generally
differ. In case of disagreement in the balance of the cash book and the pass book, the need for
preparing Bank Reconciliation Statement arises.
Bank reconciliation statement is a list in which the various items that cause a difference
between bank balance as per cash book and the balance per the bank statement as a given
date are shown.
3.2
Need and Importance of Bank Reconciliation
The following are the advantages which make bank reconciliation important.
i.
The errors that might have taken place in the cash book in connection with bank
transactions can be easily found.
ii.
Regular preparation of bank reconciliation statement prevents frauds.
iii.
It indirectly imposes moral check on the accounting staff.
iv.
By the preparation of bank reconciliation statement, uncredited cheque can be
detected and steps can be taken for their collection.
v.
It discloses any unauthorised cheque issued and cashed.
vi.
It reveals any lodgements not credited by the bank either by omission or commission.
Self- Assessment Exercise.
1.
Define Bank reconciliation and explain it’s advantages.
179
3.3
REASONS FOR DISAGREEMENT BETWEEN THE CASH BOOK AND
BANK STATEMENT
The timing and information differences which can cause disagreement are
a. Unpresented cheque
b. Uncredited cheque
c. Dishonoured cheque
d. Bank charges and interest
e. Standing order
f. Dividend
g. Credit transfer
h. Errors by the bank
i. Direct debits
j. Other errors like under casting or overcasting of the cash book balance brought down.
The meaning, effect and correction of each error will be explained separately below for
clarity and simplicity.
1
UNPRESENTED CHEQUE: These are cheques drawn or issued out in favour of
somebody but have not been drawn from the bank at the time of preparation of the
bank statement. The cheques can be delayed for months if the recipients fail to
pay
them i in. The firm had credited the cash book with the cheque issued out, thereby
reducing the balance of the cash book but it had not been debited
(deducted) to the
bank statement. So the balance of the bank remains the same. The effect of this is that
the balance of cash book is less than the balance of the bank statment. Correction:
Unpresented cheque must be added back to cash book balance.
2
UNCREDITED CHEQUE: These are cheques received and entered on the debit side of
the bank statement had been prepared before the cheques were paid in. The effect of
this is that the cash book will show a balance that is more than the balance of bank
statement . To correct this, the uncredited cheques must be deducted from the balance
of the cash book
3
DIVIDEND: This is part of the profit for shares held by the government paid direct to
the bank account. The balance of the bank statement will show variance that is more
than the balance of the cash book since the dividend will not be reflected in the cash
book. To correct this, the dividend is added back to the balance of the cash book.
180
4
STANDING ORDER: This is an order made by the government to the bank to make
regular
payments to somebody, e.g. hire purchase instalments. It can be weekly,
quarterly or yearly. The effect of this is that the balance of the bank statement will be
less than the balance of the cash book. To correct this, the standing order is deducted
from the cashbook balance.
5. DISHONOURED CHEQUES: These are cheques received from custom and paid in by
the firm, but were rejected by the bank as a result of wrong signature, incorrect amount
etc. The dishonoured cheques have not been reflected in the cash be Effect: The
balance of the bank statement will be less than the balance of the cash book. To effect
correction, the cheques are deducted from the cash book.
6.
CREDIT TRANSFERS: These are the payments made by customers of the
government directly into their account in the bank without the awareness of the cash
office. Tis has the effect of making the balance of the bank statement to be more than
the balance of the cash book. The amount of the Credit transfers are added back to the
cash book balance to effect the correction.
7. BANK CHARGES AND INTEREST: This is the amount deducted banks for services
rendered. The bank will deduct the charges without informing the government and the
cash office will not be aware of it until the bank statement is received. The effect of
bank charges and interest is to make the balance of the bank statement to be less than
the cash book balance. This is corrected by deducting bank charges from the cash book
balance.
8. ERRORS BY THE BANK: Bank can make mistakes. A sum paid in by a customer
may be credited to another customer's account.
9. UNDER CASTING OR OVER CASTING OF CASH BOOK BALANCE: Under
casting occurs when there when the balance brought down is understated as a result of
arithmetical error or error of addition and subtraction. On the other hand, overcasting
occurs when the balance brought down is overstated. Both overcasting and under
casting also result in the disagreement between the cash book balance and the bank
statement balance. The correction depends on the nature of the error.
3.4 PREPARATION OF BANK RECONCILIATION STATEMENT
A bank reconciliation statement can be prepared from two perspectives:
A. Preparation of only the bank reconciliation statement.
B Adjustment of the cash book
It should be noted that whichever method is used, the answer must be equal, but the second
181
method is preferred as it appears more practical.
3.4.1 METHOD A: PREPARATION OF ONLY BANK RECONCILIATION
STATEMENT
Under this method, only the reconciliation will be prepared. We can start with either the
cash book balance or bank statement balance. There will be no adjustment of the cash book.
Format of bank reconciliation statement starting with balance in cash book:
BANK RECONCILIATION AS AT 31ST DECEMBER, 20XX
^
^
Balance as per cash book
Add
X
Unpresented cheques
X
Credit transfers
X
Dividend
X
Undercasting of receipt side of cash book
X
Less
Uncredited cheque
X
Bank charges
X
Bank commission
X
X
Standing order
X
Dishonoured cheque
X
Overcasting of receipt side of cash book
X
X
Balance as per bank statement
X
3.4.2 FORMAT FOR BANK RECONCILIATION WHEN THE BANK
STATEMENT BALANCE IS KNOWN
BANK RECONCILIATION STATEMENT AS AT 31ST DECEMBER
^
Balance as per bank statement
^
X
Add Uncredited cheques
X
Bank charges
X
Standing order
X
Dishonoured cheques
X
Overcasting of receipt side of cash book
X
182
Direct debits
X
X
A
Less Unpresented cheques
Credit transfers
X
Dividends
X
Undercasting of receipt side of cash book •
X
_X_
Balance as per cash book
X
Illustration 1
1. On 31st March 2015, Ogiedu State University cash book showed a debit balance of
^2,000,000. Bank statement showed a balance of ^2,270,000. On comparison, the following
were found
a.
Cheques drawn amounting to ^l ,500,000 had not been presented for payment.
1.
A standing order of ^600,000 to a club was not taken into consideration.
2.
Bank charges of ^50,000 were entered in the bank statement only.
3.
A dividend of ^300,0000 from the university’s investment was paid directly into the
bank and not recorded in the cash book.
4.
Cheques for ^1,000,0000 were entered into the cash book and paid to the bank but had
not been cleared and thus not credited.
5.
A customer, Killien, paid ^120,000 directly into the bank without notifying the
University.
Solution
The above question will be solved by starting with the balance as per cash book
Bank reconciliation statement as at 31st March 2015
^’000
Balance as per cash book
Add Unpresented cheque
Dividends
Credit transfers
1,500
300
120
Less Uncredited cheque
Standing order
Bank charges
1,000
600
50
Balance as per bank statement
2,000
#’000
1,920
3,920
1,650
2,270
We can also start with the balance as per bank statement. The workings will be shown below:
Bank reconciliation statement as at 31st March 2015
183
^’000
Balance as per bank statement
Add Uncredited cheque
Standing order
Bank charges
1,000
600
50
Less Unpresented cheque
Dividend
Credit transfer
Balance as per cash book
1,500
300
120
^’000
2,270
1,650,
3,920
1 .920
2 ,000
METHOD B: THE ADJUSTED CASH BOOK
Under this method, an adjusted cash book is prepared and then used to prepare the bank
reconciliation statement. Any item occurring in the adjusted cash book is no longer recorded
in the bank reconciliation statement. The format for the preparation of bank reconciliation
using the adjusted cash book method is shown below.
^
Bal.
b/d
^
X
Bank commission
X
Credit transfers
X
Bank charges
X
Dividends
X
Standing orders
X
Receipt under cast
X
Dishonoured cheques
X
Payment over cast
X
Payment under cast
X
X
Receipt over cast
X
Balance b/d
X
X
Balance c/d
X
Note that if the payment side is greater than the receipt side, then the balance is overdraft.
After the preparation of the, the bank reconciliation statement is then prepared.
Bank Reconciliation Statement as at--------------------------^
Balance as per adjusted cash book
X
Add: unpresented cheques
X
X
Less: Uncredited cheques
X
Balance as per bank statement
X
184
Illustration
On the 31st August, 2016, Osikhena Enterprises’ cash book showed a debit balance of
^3,500, 000 whereas the bank statement showed a balance of ^2,325, 000.
On investigation the following items were discovered to have caused the discrepancy:
a.
The bank had made charges of ^310,000 which had not been entered in the cash book.
b.
A cheque received for ^2,000,000 entered in the cash book had not been entered by
the bank until November, 23rd 2016.
c.
A standing order for subscription of ^150,000 had been entered in the bank statement
as
paid but not in the cash book.
d.
The following cheques were, drawn but not yet presented for payment in the bank:
cheques for ^300,000; ^600,000 and ^250,000
e.
A cheque drawn for ^50,000 has been entered as ^60,000
f.
A cheque for ^35,000 previously received and paid into the bank had been returned by
the bank.
g.
A customer paid ^160,000 directly into their account in the bank. It had not been
entered in the cash book.
You are required to prepare:
i.
Adjusted cash book
ii.
Bank reconciliation statement as on 31st August 2016
SOLUTION
Adjusted cash book
Dr.
Cr.
2016
^’000
Bal b/d
Payment overcast
Credit transfers
3,500
10
^’000
Bank charges
Dishonoured cheque
160 Standing order
3,670
Bal. c/d
310
35
150
3,175
3,670
185
Bank Reconciliation as at 31st August, 2016
^
Balance as per adjusted cash book
^
3,175
Add: Unpresented cheques
300
600
250
1,150
4,325
Less: Uncredited cheques
2,000
Balance as per bank statement
2,325
4.0
SUMMARY
In this unit, you learnt about bank reconciliation in the public sector. The balance of the bank
column in cash book represents the customer’s cash balance at bank. It should be the same as
shown bank statement on any particular day. For every entry made in the cash book if there is
a corresponding entry in the pass book (maintained by the banker) or vice versa, the bank
balance will be the same in both the books. However, it must be noted that the cash book and
the banks account are maintained by two different parties and hence it is not certain that entry
in one book will always have a corresponding entry in the other. Normally entries in the cash
book should tally (agree) with those in the bank statement and the balances shown by both
books should be the same. But in practice, the balances generally differ. In case of
disagreement in the balance of the cash book and the pass book, the need for preparing Bank
Reconciliation Statement arises.
The timing and information differences which can cause disagreement are: (1) Unpresented
cheque, (2)Uncredited cheque, (3) Dishonoured cheque, (4) Bank charges and interest,
and (10) Other errors like under casting or overcasting of the cash book balance brought
down. Bank reconciliation can be prepared in two ways; (i) preparation of only the bank
reconciliation statement and (ii) Using the method of Adjusted cash book
5.0
CONCLUSION
In this unit, we have looked at the various causes of differences between the cashbook and
the Bank statement. You have been taught how to prepare a Bank reconciliation statement to
186
reconcile these differences. In the next unit, we shall be looking at other documents prepared
in the cash office.
6.0
TUTOR MARKED ASSIGNMENT
1. What are the usual sources of differences between the cash book balance and the bank
statement balance?
2. Explain the need and importance of bank reconciliation
7.0
REFERENCES /FURTHER READING
ICAN (2014).Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
187
MODULE III
Unit 1:
Preparation of transcripts
Unit 2:
Treasury final accounts –Cash basis
Unit 3:
Accounting for local governments
Unit 4:
Government Budgeting l
Unit 5:
Government Budgeting II
Unit 6:
Auditing in government
Unit 7:
Parastatals and public entities accounting
UNIT 1
PREPARATION OF TRANSCRIPTS
CONTENT
1.0
INTRODUCTION
2.0
OJECTIVES
3.0
MAIN CONTENT
3.1
Introduction to transcripts
3.2
Types of transcripts
3.3
Documents attached to transcripts
3.4
Self-accounting unit
3.5
3.4.1
Conditions to be fulfilled for a ministry to be self-accounting
3.4.2
Duties of the head of accounts of a self-accounting unit
3.4.3
Advantages of a self-accounting unit
3.4.4
Disadvantages of the Operation of Self-Accounting Units
Sub-self-accounting units
3.5.1
Similarities between self-accounting and sub-accounting ministries
includes
3.6
Non-self-accounting unit
3.7
Procedures for the preparation of a transcript
3.8
Certificate of cash and bank balances
3.9
Format of a transcript
3.10
Breakdown of expenditure
3.11
Posting of the main ledger
3.12
Above the line and below the line items
188
4.0
Summary
5.0
Conclusion
6.0
Tutor marked Assignments
7.0
References/ further reading
1.0
INTRODUCTION
In this unit, you will learn about the meaning and different types of transcripts and their
preparation. You will learn about self – accounting units including the conditions to be
fulfilled for a ministry to be self-accounting, duties of the head of accounts of a selfaccounting unit, the advantages and disadvantages of a self-accounting unit. You will also
learn about non-self-accounting units and the general procedures for the preparation of a
transcripts. Furthermore, you will be introduced to the concepts of above the line and below
the line items
2.0
OBJECTIVES
At the end of the unit, the student should be able to:
1
Appreciate the meaning and different types of transcripts
2.
List the documents attached to transcripts
3
Have adequate understanding of self – accounting units including the conditions to be
fulfilled for a ministry to be self-accounting, duties of the head of accounts of a selfaccounting unit, the advantages and disadvantages of a self-accounting unit.
4.
Know about non-self-accounting unit
5.
Understand the procedures for the preparation of a transcript
6.
Know the format of a transcript
7.
Know the differences between above the line and below the line items
3.0
MAIN CONTENTS
3.1
INTRODUCTION TO TRNSCRIPTS
The preparation of the monthly transcript is a very important aspect of the functions of a selfaccounting ministry because transcript is the means by which the information on the cash
transactions are transmitted to the treasury. The ministry/department is also required to
maintain certain records and furnish a number of returns as part of the compilation of the
final accounts indicating the position of the accounts for the month. The transcript is simply
the summary of the total payments and receipts as posted in the cash book.
3.2
TYPES OF TRANSCRIPTS
189
Every self-accounting unit is required to prepare three types of transcripts
1.
Cash Transcript: - This is also called the main transcript. It is used by self-accounting
and
sub accounting units. It is to the Accountant-General of the Federation on
monthly basis
2.
Supplementary Transcript:- This is used for summarizing inter-ministerial or
inter- governmental transactions. It is the main adjustment to the main transcript
prepared in accordance with the principle of Double Entry.
3.
Subsidiary transcript is prepared to complement the main transcript. It is used to
correct errors or omissions in the Main Transcript.
3.3
DOCUMENTS ATTACHED TO TRANSCRIPT
The following documents are required to be attached to transcripts prepared by selfaccounting units when submitting them to the treasury.
(a)
Bank reconciliation statement.
(b)
Certificate of cash and bank balances.
(c)
Schedule of outstanding vouchers
(d)
Schedule of vouchers pre-listed.
(e)
Schedule of expenditure.
Self- Assessment Exercise
1. List the documents to be attached to a transcript.
3.4
SELF-ACCOUNTING UNIT
Section1601 of the Financial Regulations 2009 define a self-accounting unit as
a
ministry/extra-ministerial office and other arms of government or unit in· which the
responsibility for the maintenance of the detailed record of expenditure and revenue and the
Below-the-line payments
and receipts of the ministry/extra-ministerial office and other arms of government or unit is
delegated to the Accounting Officer and where the Accounting Officer is required to account
to the Accountant-General in total Head (or Sub-Head where applicable) form at monthly
intervals, and also at the close of each financial year in the manner prescribed by the
Accountant-General.
By FR1602(1) The approval of the Accountant-General is required before a ministry/extraministerial office and other arms of government or Unit may become Self-Accounting.
190
3.4.1 CONDITIONS TO BE FULFILLED FOR A MINISTRY TO BE SELFACCOUNTING
The approval for Self-Accounting Unit is given on the fulfilment of the following conditions:
(1)
A fully constituted Internal Audit Unit is in place.
(2)
An Accounting Code and Internal Audit Guide for the ministry/extra-ministerial
office and other arms of government have been approved by the AccountantGeneral;
(3)
A well-equipped Central Pay Office is in existence;
(4)
There is adequate man-power for the Finance and Accounts Department is;
(5)
There is a conducive office accommodation and other infrastructure are provided; and
(6)
There is a secured Voucher Room.
3.4.2 DUTIES OF THE HEAD OF ACCOUNTS OF A SELF-ACCOUNTING UNIT
By the provisions of FR 1605, the Head of Finance and Accounts or Head of Accounts as
may be applicable shall ensure, inter alia, that:
(a)
Sub-Accounting Officers under his control submit their monthly accounts within the
prescribed time limit (Financial Regulation 808);
(b)
the accounts received from the Sub-Accounting Officers are examined in full detail
against the supporting documents;
(c)
all charges to a vote or account for which the Accounting Officer is responsible and
authorised and are fully supported by original documents and payees' receipts;
(d)
an abstract record is maintained to record the monthly and the cumulative yearly total
of each Sub-Head of expenditure and revenue in the manner that reflects any excess
of expenditure over the authorised limit or shortfall in revenue;
(e)
a consolidated monthly account (monthly transcript) is forwarded to the AccountantGeneral' within the prescribed time limit to show;
(i)
opening cash bank balance;
(ii)
the Head total for the month of the recurrent receipt and expenditure of the
ministry/extra- ministerial office and other arms .f government or unit;
191
(f)
(iii)
The Head and Sub-Head totals for the month of capital expenditure;
(iv)
the Head and Sub-Head totals for the month in respect of revenue;
(v)
The Head totals for the Below-the-line receipts and payments for the month;
(vi)
The account totals of the receipts and payments for the month;
(vii)
The closing cash/bank balance;
Monthly accounts are produced to the Accounting Officer to show the cumulative
yearly total of expenditure and revenue of each Sub- Head under his control;
(g)
There is an adequate system of Internal control over the collection of all revenues
which are under the responsibility of the Accounting Officer;
(h)
Detailed accounting instructions are issued to officers to embrace the general
provisions of Financial Regulations and any specific directives from the Minister of
Finance or the Accountant-General;
(i)
Annual budget proposals of his' ministry, extra-ministerial Office or other arms of
Government are compiled and defended under his supervision; and
G)
Monthly and quarterly statements of budget performance of his ministries/extraministerial offices and other arms of government are prepared for the attention of
management.
3.4.3 Advantages of a self-accounting unit
These are:
(a)
It encourages usage of initiative at unit level thereby increasing motivation of the staff
(b)
It increases flexibility and reduces communication problems.
(c)
It freezes central and top managers of detail analysis
and reduces their work
overload.
(d)
It facilitates the process of decision-making at the unit level
(e)
It provides an avenue for on-the-job training for lower level management.
3.4.4 Disadvantages of the Operation of Self-Accounting Units
These are:
192
(a)
It could make Co-ordination difficult particularly where there is a large number of
self-accounting units.
(b)
The existence of many communication lines among the various units and with the
Treasury department could result to information overload.
(c)
It may be difficult to achieve consistency among the various self-accounting units.
(d)
Duties and services may be duplicated in the various self-accounting units.
(e)
The lack of harmony among the various units may lead to sub-optimality. This means
that there may be pursuit of unit objectives may have detriment effects on the
maximisation of the overall objectives of the government as a whole.
(f)
Adequate and well-qualified managers may not be available in practice.
Self- Assessment Exercise
1.
3.5
State five advantages and five disadvantages of Self Accounting units.
SUB-SELF ACCOUNTING UNITS
A Sub-Self Accounting Unit is very is similar in many respects with the self-accounting
units. They perform the same functions as those of Self-Accounting Units. They differ mainly
in the list of documents that they are required to attach to the transcript they forward to the
Treasury.
The sub-self-accounting unit is required to attach the following additional
documents:
(1)
Bank reconciliation statements.
(2)
Schedule of vouchers pre-listed.
(3)
Original copy of cash book.
(4)
Duplicate copies of payment vouchers.
(5)
Certificate of cash and bank balances.
The Federal Pay Offices located in each state of the Federation is a veritable example of a
sub-self-accounting unit.
3.5.1 Similarities between self-accounting and sub-accounting ministries includes
i.
Both do not forward vouchers of their units to the Accountant-General of the
Federation
ii.
Both render expenditure in Heads total in their transcripts
iii.
Both operates a central pay office
iv.
Both give a breakdown of expenditure totals at the end of each financial year
193
v.
Both establish an internal audit unit
vi.
Both are approved by the Minister of finance to be of the status
viii.
Both operate current accounts with banks
3.6
NON-SELF ACCOUNTING UNIT
A Non-Self Accounting Unit is a Ministry or Extra-Ministerial Department which has no
control whatsoever over any of its accounting records. The Unit prepares vouchers, but has to
make payments through the Treasury. Example of non-self-accounting units are:
(i)
Code of Conduct Bureau in a state
(ii)
Public Complaint Commission office in a state.
(iii)
National Population Office in a State.
These units do not keep treasury cash book and they do not render transcript to the Treasury.
Their accounting records are maintained by the their head offices.
3.7
PROCEDURES FOR THE PREPARATION OF A TRANSCRIPT
The following procedure are followed in the preparation of monthly transcripts:
(i)
Collation of payment and receipt vouchers together with the main cash book.
(ii)
Ticking of voucher content to the cash book content to ensure completeness,
corrections and accuracy of entries and postings into the cashbook.
(iii)
Sorting of vouchers into heads and sub-heads.
(iv)
Prelisting of vouchers sub-head by sub-head and agree total with the cash book.
(v)
Posting into analysis book under heads and subheads.
(vi)
Balancing of analysis book.
(vii)
Compilation of transcript.
(viii) Preparation of voucher schedule.
3.8
CERTIFICATE OF CASH AND BANK BALANCES
This is a confirmation statement that the cash and bank balances indicated in the cash book
are correct. The certification is usually made by the Officer supervising the cashier.
3.9
FORMAT OF A TRANSCRIPT
194
A transcript has 6 columns on each side of the Debit and Credit. The Debit side has Head,
Subhead, Description, Receipts, Total and Balance while the credit side has Head, Subhead,
Description, Payments, Total and Balance. NOTE: - All transactions of below the line
accounts (items of expenditure or receipts that are not listed in the budget) are shown
separately in the transcript.
Cash Balance:
Opening Balance as at 1/1/20xx
X
Add: Total receipts for the month
X
XX
Less: Total payments for the month
(X)
Closing balance as at 31/1/20xx
XXX
Bank Balance:
Opening Balance as at 1/1/20xx
X
Add: Total receipts for the month
X
XX
Less: Total payments for the month
(X)
Closing balance as at 31/1/20xx
XXX
“I certify that at the end of January 20xx, my cash book had a cash balance of ......, which was
the same with the amount of physical cash available, and a bank balance of .........., which has
subsequently been reconciled with the Central Bank of Nigeria Nil balance”.
3.10
BREAKDOWN OF EXPENDITURE
Only the totals of Heads of classifications in the recurrent expenditures are recorded.
Consequently, a statement of expenditures by sub-heads should be prepared and transmitted
along with the transcript. The monthly totals are to be shown along with the transactions
(undertaken by other Ministries or Federal Pay Office) which have been incorporated in the
accounts. The certificate of cash and bank balances, bank reconciliation statements of internal
bank adjustment, breakdown of expenditures and vouchers are to accompany the transcript to
the Treasury.
3.11
POSTING OF THE MAIN LEDGER
195
A main ledger is to be kept in a Self-Accounting Ministry or Extra-Ministerial Department to
record transactions relating to ‘below the line’ accounts and others controlled by the
Accountant-General of the Federation. The main ledger is another form of the Treasury
general ledger. The totals of the transactions recorded in the main ledger are to be posted and
balanced monthly. The accounts which are kept in the main ledger are: Cash Account,
Imprest Account, Internal Bank Adjustment Account, Deposit Account, Personal Advances
Account, Non-Personal Advances Account and Cash Transfer Accounts. Reconciliation is
done monthly of the accounts in the main ledger with those of the Treasury general ledgers
and whatever accounts for differences between the two ledgers are to be highlighted for
follow-up action
3.12
ABOVE THE LINE AND BELOW THE LINE ITEMS
A monthly transcript is usually made up of two parts:
1. Above-the-line items and
2. Below -the –line items
Above-the- line items
These are the items of income and expenditure which contained in the appropriation act for
the year. In other words, these are items which are contained in the budget approved for the
year. They are the items of income and expenditure which are definite and known at the
tinme of budgeting. Examples are:
1. Personnel costs
2. Overhead costs
3. Tax receivable, etc.
Below-the –line items
These are items of income and expenditure which are not budgeted for in the year. The exact
amounts were not reasonably known at the time of budgeting. Examples of below the line
items are:
1. Touring advance
2. Motor vehicle advance
3. Housing loan
4. Salary advance
5. Deposits held on behalf of third parties
196
6. Remittances
7. Cash transfers.
MINISTRY/DEPARTMENT:………………….. DATE:………………
RECEIPTS
Head
PAYMENTS
Sub-
Description/
head
Particular
Amount
Sub-
Total
total
Head
Sub-
Descript
head
ion/parti
Amount
Subtotal
culars
To ta l
H e a d for
taabove the
line
th e li n e
To ta l fo r
To ta l
H e a d Be l
fo r
ow
H e a d
th e li n e
Be l o w
th e li n
e
ILLUSTRATION 1
You are the Accounting Technician for the Ministry of Agriculture. The following
information
are available in the records of the Ministry for the month of December 2012:
197
Total
Balances brought forward, 1/12/2012:
^
Bank (Debit)
3,000,000
Cash (Debit)
4,800
Revenue items collected during the month of December 2012 were:
ABOVE THE LINE
Classification
Description
^
06/1
Other Internal Revenue (Bank)
120,000
06/2
License Fees (Bank)
200,000
07/1
Royalty on Agric Inputs (Bank)
8,000
07/2
Water Rate (Cash)
12,000
10/8
Tender Fees (Cash)
28,000
11/13 Registration Fees from contractors (Cash)
12/11 Rent on Junior Staff Quarters (Cash)
20,000
7,200
12/12 Rent on Senior Staff Quarters
10,000
BELOW THE LINE
2011 Repayment of Salary Advance (Cash)
3011 Repayment of Spectacle Advance
12,000
4,000
Payments effected during the month were:
ABOVE THE LINE
Classification
Description
^
24/1
Personnel Cost (Bank)
1,200,000
24/2
Transport
200,000
24/3
Stationery (Bank)
400,000
24/4
Utilities (Cash)
16,000
24/5
Vehicle Maintenance (Cash)
12,000
BELOW THE LINE
2011 Salary Advance (Bank)
16,000
198
3011 Spectacle Advance
6,000
You are required to prepare the Transcript of the Ministry for the month of December 2012.
(Adapted from ATSWA Exam)
SOLUTION
MINISTRY OF AGRICULTURE, GHANA
06
01
00
00
00
b/f
24
revenue
01
1,200,00
02
0
03
04
05
200,000
400,000
16,000
12,000
06
02
License fees
200,000
Total for
1,828,00
head
0
24
Total for head
320,00
BELOW
06
0
THE
LINE
07
01
Royalty
8,000
02
Water rate
2,000
Total for head
20,000
07
10
08
Tender fees
28,000
28,000
20
Salary
16,00
11
advance
0
30
Spectacle
6000
11
advance
Total for
below the
199
22,000
TOTAL
Balance
SUB-TOTAL
3,004,8
AMOUNT
TOTAL
3,004,8
Other internal 120,000
DESCRIPTION
SUB-TOTAL
3,004,8
SUB-HEAD
AMOUNT
Balance b/f
HEAD
DESCRIPTION
SUB-HEAD
HEAD
TRANSCRIPT FOR THE MONTH OF DECEMBER 2011
line
11
12
13
11
Registration
20,000
20,000
Total
fees
payments
Rent on Junior 7,200
Bal.c/d
1,850,000
1,576,000
quarters
12
Rent on Senior 10,000
quarters
12
Total for head
17,000
BELOW THE
LINE
Salary advance
12,000
Spectacle
4,000
advance
Total
below
the line
16,000
421,20
0
3,
3, 426,000
426,00
0
4.0
SUMMARY
This unit discussed the preparation of transcripts and related issues. The preparation of the
monthly transcript is a very important aspect of the functions of a self-accounting ministry
because transcript is the means by which the information on the cash transactions are
transmitted to the treasury. The ministry/department is also required to maintain certain
records and furnish a number of returns as part of the compilation of the final accounts
indicating the position of the accounts for the month. The transcript is simply the summary of
the total payments and receipts as posted in the cash book. Every self-accounting unit is
required to prepare three types of transcripts: (1)
Cash
Transcript,
(2)
Supplementary
Transcripts (3) Subsidiary transcript is prepared to complement the main transcript.
Section1601 of the Financial Regulations 2009 define a self-accounting unit as
a
ministry/extra-ministerial office and other arms of government or unit in· which the
responsibility for the maintenance of the detailed record of expenditure and revenue and the
Below-the-line payments
200
and receipts of the ministry/extra-ministerial office and other arms of government or unit is
delegated to the Accounting Officer and where the Accounting Officer is required to account
to the Accountant-General in total Head (or Sub-Head where applicable) form at monthly
intervals, and also at the close of each financial year in the manner prescribed by the
Accountant-General.
By FR1602(1) The approval of the Accountant-General is required before a ministry/extraministerial office and other arms of government or Unit may become Self-Accounting.
The unit also discussed above the line and below the line items. A monthly transcript is
usually made up of two parts: (1) Above-the-line items and, (2) Below -the –line items.
Above-the- line items are the items of income and expenditure which contained in the
appropriation act for the year. In other words, these are items which are contained in the
budget approved for the year. They are the items of income and expenditure which are
definite and known at the time of budgeting. Examples are (1) Personnel cost, (2) Overhead
costs, tax receivable, etc. On the other hand, below-the –line items, are items of income and
expenditure which are not budgeted for in the year. The exact amounts were not reasonably
known at the time of budgeting. Examples of below the line items such as, touring advance.
motor vehicle advance, housing loan, salary advance, deposits held on behalf of third parties,
remittances, etc.
5.0
CONCLUSION
In this unit, you have learnt about self accounting units, sub self accounting units and
non self accounting units. You have also learnt about the transcript and the differences
between above the line accounts and below the line accounts.
6.0
TUTOR MARKED ASSIGNMENT
1.
Briefly explain the basic steps involved in the preparation of the monthly transcripts.
2.
List three major items that constitute below the line account.
3.
Explain the content of the certificate of cash and bank balances?
7.0
REFERENCES/ FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition
3, Lagos: Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited
201
ICAN (2014).Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
UNIT 2: TREASURY FINAL ACCOUNTS
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
The treasury Department
3.2
Final Accounts Unit
3.3
Financial statements produced by the Treasury
3.4
Format of Statement No.1
3.5
Format of Statement No 2
3.6
Format of Statement No. 3
3.7
Format of Statement No. 4
3.8
Other attachments to financial statements
4.0
SUMMARY AND CONCLUSION
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENTS
7.0
REFERENCES/ FURTHER READINGS
1.0
INTRODUCTION
In this unit, you will learn the about the Federal Treasury Department and the preparation of
the treasury final accounts. You will also learn about the components or units of the Federal
Treasury Department. Furthermore, the functions of the Final Accounts Unit of the Treasury
Department and the various financial statements they prepare will be discussed.
2.0
OBJECTIVES
After studying this unit, you will be able to:
1
State the components or units of the Federal Treasury Department
2
State the functions of the Final Accounts Unit of the Treasury Department
3
List the Financial statements produced by the Treasury Department
202
4
Prepare the various statements produced by the Treasury Department
5
Prepare the Other attachments to financial statements
3.1 THE TREASURY DEPARTMENT
The office of the Accountant –General is responsible for the preparation of the final accounts
at both the federal and state levels. The office is made up of eight departments:
1.
Finance and Administration
2.
Personnel
3.
Administration
4.
Treasury
5.
Internal Audit
6.
Ministry of Finance Incorporated
7
Treasury Academy
8.
Inspectorate.
Out of these departments, the Treasury Department of the Federal Ministry of Finance is
charged with the responsibility of preparing the final accounts. To execute this function
effectively, the Department of Treasury is sub-divided into five units:
1.
Treasury
2
Final accounts
3
Sub-Treasury
4.
Revenue Monitoring
5.
Cash Supply
Self- Assessment Exercise
1.
List the departments which constitute Office of the Accountant General of the
Federation.
3.2
FINAL ACCOUTNS UNIT
It is the ultimate responsibility of the Final Accounts unit within the Treasury Department of
the Accountant-General’s office that is responsible for the production of the final accounts of
government. To do this, the unit obtains information from various sources such as:
203
(a)
Transcripts from the Ministries and Extra-Ministerial Departments.
(b)
Accounts from the Federal Pay Offices, States and Local Government Councils.
(c)
Accounts from the Nigeria High Commissions Overseas
3.3
FINANCIAL STATEMENTS PRODUCED BY THE TREASURY
The types, number and format of financial statements produced by the treasury in Nigeria has
undergone several changes. By law, with effect from 2016, the Accrual-bases International
Public Sector Accounting Standards (IPSAS) are operational in practice. However, it is
common knowledge that apart from some public sector entities including Millennium
Development Agencies, most governments at the federal, states and local government
councils still maintain and operate the cash based system. As a result the two systems will be
presented here. The cash based system is presented here while the accrual based IPSAS are
discussed later.
With effect from January, 2003, the following statutory financial statements are prepared at
the Federal and State Government Levels:
1.
Preface to the financial statements: This is a statement by the Minister of
Finance/Commissioner for Finance that gives an overview of the financial statements
of the Government as prepared and presented by the Accountant-General. The
overview cover among other things, the following: (i)
overview of the global
economy, (ii) Evaluation of Government performance for the year under review, (iii)
Future economic outlook. and any other relevant remarks.
2.
Statement of responsibility for the financial statements: Here the Accountant-General
of the Federation (or the State) states, among others, that the financial statements have
been prepared in accordance with the provision of the Finance (Control and
Management) Act, Cap 144 LFN 1990 (as amended) and in compliance with the
generally accepted accounting practice.
3.
Statement of opinion of the Auditor-General. This is in the form of a Certificate given
by the Auditor –General indicating whether or not the financial statements present a
true and fair view of the financial position of Government as at 31st December of the
relevant Year and its operations for the year ended on that date.
4.
Statement No. 1 Cash Flow Statement
204
5.
Statement No. 2 Statement of ssets and Liabilities
6.
Statement No. 3 Statement of Consolidated Revenue Fund
7.
Statement No. 4 Statement of Capital Development Fund
8.
Notes to the Financial Statements
The formats of the statements are stated below:
3.4
FORMAT OF STATEMENT NO 1
CASH FLOW STATEMENT FOR THE YEAR ENDED 31ST DEC., 20XX
NOTE
CURRENT
PREVIOUS
YEAR
YEAR
^m
^m
Cash flow from Operating Activities
Receipts
Statutory Revenue Allocation
3
x
x
VAT
4
x
x
Internally Generated Revenue
5
x
x
Grants / Subventions
6
x
x
Miscellaneous
7
x_
x_
x
x_
(x)
(x)
Pensions and Gratuities
(x)
(x)
Consolidated Revenue Fund Charges
(x)
(x)
Overhead Costs
(x)
(x)
Public Debt Charges
(x)
(x)
Recurrent Grants and Subventions
(x)
(x)
Subsidies
(x)
(x)
(x)
(x)
(x)
(x)
(x)
(x)
(x)
(x)
Total Receipts.
Payments
Personnel Emoluments
8
Miscellaneous Expenses
9
Total Payments.
Net Cash Flow from Operating Activities.
Cash Flow from Investment Activities.
Purchase / Construction of assets
10
Purchase of Financial Market Instruments.
205
Proceeds from sale of Assets.
x
Net Cash Flow from Investing Activities.
x_
_x_
x
Cash Flow from Financial Activities
Proceeds from Loans and Other Borrowings
11
x
x
Dividends Received
12
x
x
Repayment of Loans
13 (x)
(x)
Net Cash Flow from Financing Activities
x
x
Net Increase/ (Decrease) in cash & cash Equivalents
x
x
Cash & Its equivalent at l/2/20xx.
x
x
Cash & Its equivalent at 31/12/20xx
x
x
3.5
FORMAT OF STATEMENT NO 2
STATEMENT OF ASETS AND LIABILITIES FOR THE YEAR ENDEC31ST DECEMBER. 2XXX
ACTUAL
NOTES
CURRENT PREVIOUS
YEAR
YEAR
^m
^m
ASSETS
Liquid Assets
Cash and Bank Balances
14
xx
xx
Others -
15
xx
xx
xxx
xxx
Investments
Min. of Finance Incorporated
16
xx
xx
Advances
17
xx
XX
Treasury clearance a/cs
18 xx
xx
xxx
XXX
LIABILITIES
Consolidated Revenue Fund
19
xx
xx
Capital Development Fund
20
xx
xx
Other Government Funds
21
xx
xxx
206
xx
xxx
Foreign Loans
22
xx
xx
Internal Loans
23
xx
xx
Development Loan Stock
24
xx
xx
xxx
xxx
3.6
STATEMENT NO. 3
CONSOLIDATED REVENUE FUND
FOR THE YEAR ENDED 31ST DECEMBER 20XX
ACTUAL
NOTES
BUDGET
ACTUAL
VARIANCE
PREVIOUS
CURRENT CURRENT
YEAR
YEAR
YEAR
Nm
^m
^m
xx
xx
xx
Opening Balance
%
x
Add Revenue
xx
Statutory Revenue Allocation
xx
Fines & Sales
25
xx
xx
xx
Earning & Sales
26
xx
xx
xx
Rent on Government Property
xx
xx
x
xx
Interest & Dividend
27
xx
xx
x
xx
Taxes (Direct & Indirect)
28
xx
xx
x
xx
Miscellaneous
29
xx
xx
x
XXX
Total Revenue (a)
xxx
xxx
X
Less: Expenditure
xx
Administrative Services
xx
xx
xx
xx
Education Services
xx
xx
xx
xx
Transport Services
xx
xx
xx
xx
Health Services
xx
xx
XX
xx
Agriculture Services
xx
xx
xx
xx
Others of General Nature
xx
xx
xx
xx
Subsidies
xx
xx
xx
xx
Miscellaneous
xx
xx
xx
x
30
31
32
xxx
Total Expenditure (b)
xxx
xxx
xxx
Operating Balance (a-b)
_xxx
xxx
AppropriatIions/Transfers
207
x
xx
Capital Development Fund
xx
xx
x
xx
Loan Repayment Fund
xx
xx
x
xxx
Closing Balance
xxx
xxx
x
3.7
FORMAT OF STATEMENT NO. 4
CAPITAL DEVELOPMENT FUND
FOR THE YEAR ENDED 31ST DECEMBER 20XX
ACTUAL
NOTES BUDGET
ANCEPREVIOUS
YEAR
Mm
XX Opening Balance
Add: Capital receipts
XX Value Added Tax
XX Transfer from CRF
XX Internal Loans
XX External Loans
XX Grants/ Subventions
XX Miscellaneous
XX Total capitals receipts (a)
Less: Capital Expenditure
X
Economic Sector
XX Agriculture
EPENDITURE
XX Livestock
XX Forestry
XX Fisheries
XX Manufacture
XX Power
XX Commerce and Finance
Social Service Sector
XX Education
XX Health
XX Housing
XX Others
Regional Development Sector
XX Niger Delta Dev. Commission
XX River Basin Authority
Administration Sector
XX Administration sector
XXX Total expenditure (b)
XXX Closing balance (a-b)
ACTUA
CURREN CURREN
L
YEAR
YEAR
T ^m
T ^m
XX
XX
XX
XX
VARIANC
E %
X
33
34
35
36
TO
XX
XX
XX
XXX
XX
x*
XX
XX
XX
XX
XXX
37
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX
X
X
X
X
X
X
X
38
XX
XX
XX
XX
XX
Xx
XX
XX
X
X
X
X
39
XX
XX
XX
XX
X
X
40
XX
XXX
XXX
XX
XXX
XXX
208
X
X
X
X
X
X
X
X
XXX
XXX
3.7
OTHER ATTACHMENTS TO FINANCIAL STATEMENTS
The following supporting documents and information are usually attached to the Treasury
Financial Statements:
i.
Notes to the Financial Statements.
ii.
Schedule of Revenue Analysis by Heads.
iii.
Schedule of Expenditure Analysis by Heads.
iv.
Schedule of Project Payments (in summary form).
v.
Schedule of Investments.
vi.
Schedule of Public Debts.
vii.
Schedule of Grants and Subsidies.
viii. Schedule of Special and Miscellaneous Funds (e.g. Ecological Funds).
ix.
Schedule of Fixed Assets as at the end of the year.
ILLUSTRATION 1
The following information have been extracted from the records of AFASHIO STATE of
Nigeria, for the year ended 31 December 2006.
^’000
Personal emolument
Consolidated Revenue Fund charges
Statutory Revenue allocation
Proceeds from the sale of fixed assets
Purchase of marketable securities
Purchase and construction of fixed assets
Share of value added tax
Shore of excess crude oil
Internally generated revenue
Gratuities and pensions
Miscellaneous income
Overhead expenses
Recurrent grants made
Miscellaneous expenses
Servicing and repayment oi: public debts
Grants and subventions from Non-Governmental Organizations
209
2,000,000
1,000,000
20,000,000
100,000
50,000
500,000
200,000
100,000
10,000,000
15,000.000
50,000
30,000
20,000
10,000
100,000
200,000
Proceeds from loan and other borrowings
Dividends received
You are required to:
300,000
100,000
Prepare the State’s Cash flow statement for the year ended 31 December 2006.
(Adapted from ICAN PE11 March 2008)
SOLUTION
AFASHIO STATE OF NIGERIA
STATEMENT OF CASH FLOWS
FOR YEAR ENDED 31ST DECEMBER, 2006
^’000
^’000
OPERATING ACTIVITIES
Statutory Revenue Allocation
20,000
Share of Excess Crude Oil
100
Internally Generated Revenue
10,000
Share of Value Added Tax
200
Grant and Subventions Receive
200
Miscellaneous Income
50
Personal Emoluments
(2,000)
Consolidated Revenue Fund Charges
(1,000)
Gratuities and Pensions
(15,000)
Overhead Expenses
(36)
Recurrent Grants made
(20)
Miscellaneous Expenses
(10)
Servicing and Repayment of Public Debts
(100)
Net Cash flows from Operating Activities
12,384
INVESTING ACTIVITIES:
Proceeds from Sales of fixed Assets
100
Purchase of Marketable Securities
(50)
Purchase and Construction of fixed Assets
(500)
Net Cash flow from investing
(450)
FINANCING ACTIVITIES:
Proceeds from Loan and Other Borrowings
300
Dividends Received
100 400
210
Cash and Equivalents at 31/12/2006
12,334
ILLUSTRATION 2
The Treasury Department of Afemesan State of Nigeria has furnished the following ledger
balances in respect of its operations for the year ended 31 December, 2009
Description
Amount ^’000
1009
Rural Development
200,000
1110
Transportation
150,000
1220
General Administration
500,000
1500
Housing
130,000
1600
Delivery of Health Care
250,000
1650
Environmental
315,000
Management
1700
Education
1701
External Loan
3,500,000
1705
Internal Loan
2,500,000
1805
External Grant
5,800,000
1810
Contribution
Consolidated
256,000
from 8,700,000
Revenue
Fund (CRF)
1824
Mining and Quarrying
150,000
1830
Defence
650,000
The following are the additional information extracted from the State’s approved capital
budget.
211
Head of
Amount
Account
(^’000)
1701
4,118,000
1705
2,000,000
1805
5,700,000
1810
6,000,000
1830
690,000
1009
216,000
1110
170,000
1220
350,000
1500
140,000
1600
700,000
1650
450,000
1700
200,000
1824
190,000
(Adapted from ICAN PE11 2011)
212
SOLUTION
Head of
Actual Estimates
Variance
Account
Description
^’000
^’000
%
1701
External loan
4,118,000
3,500,000
-15.01
1705
Internal loan
2,000,000
2,500,000
+25.00
1805
External grant
5,700,000
5,800,000
+1.75
1810
Contribution
6,000,000
8,700,000
+28.33
from (CRF)
(a)
17,818,000
20,500,000
1009
Rural Dev.
216,000
200,000
-07.41
1110
Transportation
170,000
150,000
-11.76
1220
General Admin.
350,000
500,000
+42.86
1500
Housing
140,000
130,000
-07.14
1600
Delivery of
700,000
250,000
-64.29
450,000
315,000
-30.00
Health
1650
Environmental
Management
1700
Education
200,000
256,000
+28.00
1824
Mining and
190,000
150,000
-21.05
690,000
650,000
-05.80
Quarrying
1830
Defence
(b)
3,106,000
Surplus (c) = (a) - (b)
14,712,000
2,601,000
17,899,000
The following balances were extracted from the books of GUMI STATE GOVERNMENT
OF NAIJA as at 31s' December, 2000:
213
1999
2000
^'000
^’000
644,997
Statutory allocation
4,841,017
119,102
Value Added Tax Collection
160,133
403,020
Internally Generated Revenue
498,843
58,256
Other Revenue
79,397
490,110
Personnel Cost
1,170,666
280,095
Overhead Cost
739,646
137,081
Consolidated Revenue Fund
382,936
'
Charges
246,400
Other Capital Receipts
394,969
Capital Expenditure
591
Other Fund Deposits
28,288 ' Cash at Bank
379,237
2,753,553
591
69,604
67,799
Deposit with Banks
740,352
62,772
Investments
27,987
11,252
Advance
74,474
Additional Information provided:
i. The following amounts expended on unfunded Internal Debt Servicing have been
included in the Consolidated Revenue Fund Charges:
^ (000)
1999
36,970
2000
45,364
Any surplus/deficit on Revenue Account is transferred to the Capital Account as
appropriate.
You are required to prepare:
(a)
(b)
Recurrent and Capital Accounts
Statement of Assets and Liabilities for the year ended 31" December, 2000
N.B. Show comparative figures.
(Adapted from ICAN PE1 March, 2002)
214
SOLUTION TO QUESTION
(a) GUMI STATE GOVERNMENT OF NAIJA
CONSOLIDATED FINANCIAL STATEMENTS
FOR THE YEAR ENDED 31ST DECEMBER 2000
RECURRENT ACCOUNT
Recurrent Revenue
Statutory Allocation
Value Addedd Tax
Internally GcilOfirated Revenue
1999
^ (000)
644,997
119.102
403,020
Oilier Revenue
(A)
58,256
1,225.375
2000
^ (000)
4,841,017
160,133
498,843
79,397
5,579,390
Recurrent Expenditure
Personnel Cost
Overhead Cost
490,110
280,095
1,170,666
739,646
Consolidated Revenue Fund Charges
137.081
382,936
907,286
318,089
2.293,248
3,286.142
CAPITAL ACCOUNT:
Transfer from Recurrent Account
318,089
3,286.142
Other Capital Receipts
246,400
379,237
564,489
3,665,379
(B)
Surplus/(Deficit) to Capital a/c. (A-B)
Capital Expenditure
(394,969)
Capital Development Fund c/f.
169,520
Internal Debt Servicing Component of the
Consolidated, Revenue Fund Charges.
215
36.970
(2,753,553)
911,826
43,364
(b) STATEMENT OK ASSETS AM) LIABILITIES
FOR THE YEAR ENDED 31st DECEMBER 2000
1999
^ (000)
169,520
591
170,111
LIABILITIES
Public Funds - C.R.F.
Oilier Funds Deposit
ASSETS
Cash at Bank
Deposit with Banks
Investments
Advance
4.0
2000
^ (000)
911,826
591,591
91 2,417
28,288
67,799
69,604
740,352
62.772
11,252
170,111
27,987 74,474
912,417
SUMMARY
In this unit, we discussed the final accounts prepared by the Federal Treasury Department.
The office of the Accountant –General is responsible for the preparation of the final accounts
at both the federal and state levels. The office is made up of eight departments: (1) Finance
and Administration; (2)Personnel; (3 ) Administration, (4) Treasury, (5)Internal Audit, (6)
Ministry of Finance Incorporated, (7) Treasury Academy and (8)
Inspectorate.
Out of these departments, the Treasury Department of the Federal Ministry of Finance is
charged with the responsibility of preparing the final accounts. To execute this function
effectively, the Department of Treasury is sub-divided into five units: (1) Treasury, (2)Final
accounts, (3) Sub-Treasury (4) Revenue Monitoring and (5) Cash Supply
It is the ultimate responsibility of the Final Accounts unit within the Treasury Department of
the Accountant-General’s office that is responsible for the production of the final accounts of
government. With effect from January, 2003, the following statutory financial statements are
prepared at the Federal and State Government Levels: (1), Preface
statements: (2) Statement of responsibility for the financial (3)
to
the
financial
Statement of opinion of
the Auditor-General ( 4). Statement No. 1 -Cash Flow Statement, (5)
Statement No. 2
Statement of assets and Liabilities, (6) Statement No. 3 Statement of Consolidated Revenue
Fund, (7) Statement No. 4 Statement of Capital Development Fund, and (8)
Financial Statements.
216
Notes to the
6.0
CONCLUSION
The final accounts prepared by the Accountant General of the Federation through the treasury
department are expected to be submitted annually to the office of the Auditor General for the
Federation. You will learn about the responsibilities of the Auditor General for the Federation
in another unit.
6.0
TUTOR MARKED ASIGNMENT
1
State the components or units of the Federal Treasury Department
2
State the functions of the Final Accounts Unit of the Treasury Department
3
List the Financial statements produced by the Treasury Department
7.0
REFERENCES/FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition
3, Lagos: Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
217
UNIT 3: ACCOUNTING FOR LOCAL GOVRNMENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.4
3.5
3.1
Introduction to local government
3.2
Functions of local government councils
3.3
Finance officers of local government
3.3.1
The Chairman
3.3.2
The Director of Finance /Treasurer to the Local Government
3.3.3
The Director of Budget, Planning, Research and Statistics
3.3.4
Revenue Officers
Sources of revenue of a local government council
3.4.1
Statutory Sources of Revenue
3.4.2
Permissive Sources of Revenue
3.4.3
Incidental Sources of Revenue
The financial statements of local government council
3.5.1
Statement No. 1 (Local Government) Statement of Financial
Responsibility
3.5.2 Statement No. 2 (Local Government) Statement of Opinion of
Auditor General for local government
3.6
3.5.3
Statement No.3: Cash Flow Statement
3.5.4
Statement No. 4: Statement of Assets and Liabilities
3.5.5
Statement No. 5Statement of Revenue and Expenditure
3.5.6
Statement No. 6:Notes to the Financial Statements
Auditing in the local government
3.6.1
Auditor General for Local Government
3.6.2
The Local Government Audit Alarm Committee
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/ FURTHER READING
218
1.0
INTRODUCTION
In this unit, you will be introduced to accounting in local government councils in Nigeria.
You will learn the functions of local government councils in Nigeria, the finance officers of
the councils and their functions. You will also learn the sources of revenue of a local
government council. Furthermore, you will learn the financial statements of local government
councils as well as auditing in the local government.
2.0
OBJECTIVES
After studying this unit, you should be able to:
1.
List functions of local government councils
2.
State the finance officers of local government and the respective functions
3
Identify the sources of revenue of a local government council
4
Identify the financial statements required to be prepared by local government
councils including their respective formats.
5.
State the functions of the State Auditor General for Local government
6
List the members of the Local Government Audit Alarm Committee and the
functions of the committee
3.1
INTRODUCTION TO LOCAL GOVERNMENT
The Local Government is the ‘third-tier’ Administration in Nigeria. As a tier of government,
local government councils are supposed to autonomous and independent of the federal and
state governments. The functions of local government councils are well spelt out in the
Fourth Schedule of the 19999 constitution.
3.2
FUNCTIONS OF LOCAL GOVERNMENT COUNCILS
The functions of local government council as stated in the Fourth Schedule of the 1999
Constitution, as follows:
(1)
The consideration and the making of recommendations to a State commission on
economic planning or any similar body on.
(i)
The economic development of the State, particularly in so far as the areas of
authority of the council and of the State are affected, and
(ii)
Proposals made by the said commission or body;
(2)
Collection of rates, radio and television licences;
(3)
Establishment and maintenance of cemeteries, burial grounds and homes for the
destitute or infirm;
219
(4)
Licensing of bicycles, trucks (other than mechanically propelled trucks), canoes,
wheel barrows and carts;
(5)
Establishment, maintenance and regulation of slaughter houses, slaughter slabs,
markets, motor parks and public conveniences;
(6)
Construction and maintenance of roads, streets, street lightings, drains and other
public highways, parks, gardens, open spaces, or such public facilities as may be
prescribed from time to time by the House of Assembly of a State;
(7)
Naming of roads and streets and numbering of houses;
(8)
Provision and maintenance of public conveniences, sewage and refuse disposal;
(9)
Registration of all births, deaths and marriages;
(10)
Assessment of privately owned houses or tenements for the purpose of levying such
rates as may be prescribed by the House of Assembly of a State; and
(11)
(12).
Control and regulation of (i)
Out-door advertising and hoarding,
(ii)
Movement and keeping of pets of all description,
(iii)
Shops and kiosks,
(iv)
Restaurants, bakeries and other places for sale of food to the public,
(v)
Laundries, and
(vi)
Licensing, regulation and control of the sale of liquor.
Participation of such council in the Government of a State as respects the following
matters:
(i)
The provision and maintenance of primary, adult and vocational education;
(ii)
The development of agriculture and natural resources, other than the
exploitation
of materials
(iii)
The provision and maintenance of health services; and
(iv)
Such other functions as may be conferred on a local government council by
the House of Assembly of the State.
Self- Assessment Exercise
1.
List the functions of Local Governments.
3.3
FINANCE OFFICERS OF LOCAL GOVERNMENT
The officers who are directly or indirectly connected with finance and accounting functions
in local government councils are:
220
(1) The Chairman
(2) The Director of Finance/Treasure to the Local Government
(3) The Director of Budget, Planning, Research and Statistics
(4) Revenue Officers
3.3.1 THE CHAIRMAN
The chairman is the chief accounting officer of a local government council and his duties and
responsibilities are specified in the Model Financial Memoranda for Local Government, third
edition 2009. According to the Memoranda, the Chairman of a Local Government shall be
the Chief Executive and Accounting Officer of the Local Government provided his role as
Accounting Officer shall exclude signing vouchers and cheques. The performs the following
functions:
1. Presides over the meetings of the Executive Committee.
2. He submits a report to the Local Government Council on the proceedings of the
Executive Committee as may be required by the Council.
3. He ensures strict compliance with the provisions of the Financial Memoranda
throughout the Local Government organization.
4. He observes and comply fully with checks and balances spelt out in the existing
guidelines and Financial Regulations governing receipts and disbursement of public
funds and other assets entrusted to his care and shall be liable for any breach thereof.
5. The Chairman as Chief Executive and Accounting Officer faces periodic checks in
order to ensure full adherence to the Finance (Control and Management) Act of 1958
and all its amendments. To this end;
(a)
All instructions relating to expenditure of public funds by the Accounting
Officer shall be in writing
(b)
The Accounting Officer shall be responsible to account to the Public
Accounts Committee for all monies voted for each Department and shall
be peculiarly liable.
(c) The Chairman as Chief Executive and Accounting Officer renders Annual
Reports of
his Local Government in order to ensure accountability and
enforce the performance ethic.
(d)
The Chairman as Accounting Officer is bound by the provisions of any other
rules, regulations, guidelines and Laws governing the roles and
of a Chief Executive and Accounting Officer.
221
functions
6
In consultation with the Secretary to Local Government and the Supervisors, the
Chairman shall set the target which each employee in the Local Government
shall aim at, even in routine matters. In setting target, for Local Government
Employees, the Chief Executive shall first take into account the relevant
Local
policies, the development plan and annual budgets.
7
He ensures that Audit queries addressed to him are answered within the time limit
stipulated in the Financial Memorandum 39.3. Where the query concerns him,
it
must be answered promptly by him in person.
8
As the Accounting Officer, the Chairman shall have sole responsibility for the
organization of the financial/accounting function in the Local Government. However,
delegates to the Treasurer the day-to-day operation of the function in consultation
with the Secretary.
9
He establishes and maintains an Internal Audit to provide a complete and continuous
audit
of the accounts and records of revenue, expenditure, plant allocated and
unallocated stores.
10
He ensures that the recommendations of the Internal Auditor, whether in respect of
losses, waste or the improvement of systems or procedures taker thereon including, if
necessary, reference to the Council for its decision 01 direction.
11
He ensures that any directions issued by the Local Government Council o the
Governor's Office concerning any aspects of the financial management of the Local
Government, or any decisions of the Auditor-General in regard to matters of
disallowance and surcharge are properly and promptly implemented.
12
At the beginning of each Financial Year, the he submits to the Executive Committee,
the list (by Name and Department) of each Head of Department in the Local
Government who exercise authority to approve expenditure within the limits refer to
in the Financial Memorandum.
13
At the Expiration of his term of Office, or whenever he is leaving office for any
reason whatsoever, the Chairman shall prepare a comprehensive Handing Over Note
for his successor.
14
He ensures the maintenance of strong accounting and internal control system
15
He appends his signature on "Statement Number I: "Responsibility financial
Statements"
16
He ensures the practice of good corporate governance
17
He evolves continuous basis for effective risk practice.
222
3.3.2 THE
DIRECTOR
OF
FINANCE
/TREASURER
TO
THE
LOCAL
GOVERNMENT
According to section1.13 of the Memoranda, the Treasurer is the Chief Accounts Officer and
Head of the Finance Department of the Local Government. The Treasurer as the Chief
Finance Adviser to the Local Government is in attendance at Executive Committee meetings
and other Committees to provide advice concerning the financial implications of proposed
policies, the state of the Local Government's finances and financial matters generally. His
duties and responsibilities include:
1.
He is responsible for the administrative control of the Finance Department of the
Local Government;
2.
He perform .duties as Chief Accounts Officer of the receipts and payment of the
Local Government;
3.
He facilitates the work of the Audit Alarm Committee;
4.
He is responsible for the budgetary control and supervision of the accounts of all
Departments of the Local Government;
(5)
He is responsible for the sound administration and effective organization and working
of the Finance Department;
(6)
He prepares and publishes monthly and annual financial statements of the
Government;
(7)
He is a signatory to all Local Government cheques and vouchers, and contractual
documents;
(8)
He performs such other related duties as may be assigned by the Chairman;
(9)
He is responsible for the maintenance of sound audit and internal control systems;
(10)
He appends his signature on statement No. 1
“Responsibility for Financial
Statements”
(11)
He is the custodian of security documents of the Local Government;
(12)
He ensures that accounting systems as laid down in the Financial Memoranda for
Local Governments are complied with by all the Departments and supervising the
accounts for all Department of Local Government.
(13)
The Treasurer must not be the Cashier in the Treasury.
223
3.3.3 THE DIRECTOR OF BUDGET, PLANNING, RESEARCH AND STATISTICS
According to the Financial Memoranda, the Director of Budget, Planning, Research, and
Statistics is responsible for:
1.
Co-ordinating the activities of the Department
2.
Advising the Local Government on matters relating to Budget National (rolling) plans
and data collection
3.
Controlling the vote of the department.
4.
Budgeting control
3.3.4 REVENUE OFFICERS
All Revenue Officers in the Local Government are under the Treasurer. They collect revenue,
account for them and render returns to the Local Government Treasurer in accordance with
the provisions of the Financial Memoranda and other existing Financial Regulations.
By section 1.22 of the Financial Memoranda, It is the duty of a Revenue Collector:
(1)
to keep such books of account and other records prescribed by Financial Memoranda
and the Treasurer as are needed to ensure to that all revenue and other monies due to
the Local Government and for which he is responsible, are collected in full.
(2)
to collect promptly all sums due to the Local Government;
(3)
to report to his immediate supervisor any instances of default in payment any sums
due to the Local Government;
(4)
to issue, immediately on payment, receipt or licences in the prescribed form for all
payments made to him;
(5)
to record, in a Revenue Collector's Cash Book details of all receipts, revenue and the
payment of such revenue collections to the Treasury or a Bank;
(6)
pending the payment to the Treasury or a Bank, to safeguard all revenue collected by
placing it in the safe or cash tank provided by the Local Government;
(7)
to keep all his revenue earning books under lock and key when not in use;
(8)
to pay all revenue collected to the Treasury or Bank at intervals prescribe! by the
Local Government;
(9)
when required to do so, to present all his revenue earning books, accoun books and
cash to the person responsible for checking his accounts;
(10)
to submit used, partly used and unused revenue earning books, licence book and
relevant documents to the Treasury once a month or at such less intervals as may be
prescribed, whether or not there have been any collection or payments to Treasury;
224
and to return all exhausted revenue earnings book to the official from whom they
were received.
Self- Assessment Exercise
1.
What are the functions of the (i) Local Government chairman
(ii) Revenue
officers?
3.4
SOURCES OF REVENUE OF A LOCAL GOVERNMENT COUNCIL
There are three sources of revenue of a Local Government Council. These are:
1.
Statutory Sources of Revenue;
2.
Permissive Sources of Revenue; and
3.
Incidental Sources of Revenue.
3.4.1 Statutory Sources of Revenue
There are three statutory sources of revenue for local government councils.
a)
Federation Account: All the local governments in the country are entitled to a share of
the Federation Account of 20.60%.This amount is now paid directly to
the
local
government councils by the Federal Government. The statutory allocation of money to
the Local Government Councils by the Federal and
State Governments is covered by
the Revenue Allocation Act of 1982. This Act was amended in 1986, 1988 and 1989.
Paragraph 162(3)(5) of the 1999 Constitution lends weight to the extant laws earlier
cited. Up to 31/12/91, 15%
of the collections in the Federation Account accrued to
the Local Government Councils. As from 1 January, 1992 the allocation rate rose to
20% and from.
b)
States Internally Generated Revenue: 10% of the a State’s internally generated revenue
is distributed to the local government councils in the state
by virtue of paragraph162(7) of the 1999
generated revenue to the Joint Local
Each State Government,
Constitution, pays 10% of its internally
Government Council Account, to be shared
among the Local Government Councils under the State’s supervision. Such revenue is
shared, based on a number of considerations such as population and level of
development
c)
Fees and other charges imposed by the Council under its instrument of creation and
Acts of Parliament promulgated from time-to-time.
3.4.2 Permissive Sources of Revenue
225
These are the levies collectible by local government councils under Act No. 21 of 1998
Under this Act, Local Government Councils are eligible to collect the following taxes and
levies, only:
(1)
Shop and kiosk rates.
(2)
Tenement rates.
(3)
On and Off Liquor fees.
(4)
Slaughter slab fees.
(5)
Marriage, birth and death registration fees.
(6)
Naming of street registration fees, excluding any street in the State Capital.
(7)
Right of Occupancy fees on land in the rural areas, excluding those collectable by the
Federal and State Governments.
(8)
Market taxes and levies, excluding any market where State finance is involved.
(9)
Motor park levies.
(10)
Domestic animal licence fees.
(11)
Bicycle, truck, canoe, wheelbarrow and cart fees, other than a mechanically
propelled truck.
(12)
Cattle tax payable by cattle farmers only.
(13)
Merriment and road closure levies.
(14)
Radio
and television licence fees
(other
than on radio
and television
transmitter).
(15)
Vehicle radio licence fees (to be imposed by the Local Government Council of
the
State in which the car is registered).
(16)
Wrong parking charges.
(17)
Public convenience, sewage and refuse disposal fees.
(18)
Customary burial ground permit fees.
(19)
Religious places establishment permit fees.
(20)
Signboard and advertisement permit fees.
3.4.3 Incidental Sources of Revenue
These are sources that are incidental to or arising from the operations of a local government
council. Their scope is not defined by statute. They include:
(1)
Proceeds from economic projects undertaken, such as farming.
(2)
Grants from the Federal or State Government.
(3)
Investment incomes, e.g. interest and dividends received.
226
(4)
Proceeds of sale of seized goods, boarded vehicles, etc.
(5)
Donations.
3.5
THE FINANCIAL STATEMENTS OF LOCAL GOVERNMENT COUNCIL
Section 32.7 of Model Financial Memoranda for Local Governments, 2009 specifies the
following financial statements for local government councils in Nigeria:
Statement No. I: Statement of Financial Responsibility
Statement No.2: Statement of Opinion of Auditor General for local government
Statement No.3: Cash Flow Statement
Statement No.4: Statement of Assets and Liabilities
Statement No. 5: Statement of Revenue and Expenditure
Statement No. 6: Notes to the Financial Statements
3.5.1 STATEMENT NO. 1 (LOCAL GOVERNMENT)
This is a statement issued and signed by the chairman and the Treasurer indicating their
individual responsibilities for the preparation of the financial statements. The statement is in
the following standard format.
RESPONSIBILITY FOR FINANCIAL STAVEMENTS
These Financial Statements have been prepared by the Treasurer of ...............................
Local Government Council in accordance with the provisions of the Finance (Control and
Management) Act 1958 as amended. The Financial Statements comply with generally
accepted accounting practice.
The Treasurer is responsible for establishing and maintaining a system of internal controls
designed to provide reasonable assurance that the transactions recorded are within statutory
authority an and properly record the use of all public financial resources by the Local
Government Council. To the best of my knowledge, this system of internal control has
operated adequately throughout the reporting period.
Sign
Treasurer
Date
We accept responsibility for the integrity of these Financial Statements, the information they
contain and their compliance with the Finance (Control and Management) Act 1958 as
amended.
227
In our opinion, these Financial statements fairly reflect the financial position of the Local
Government as 31 st December 20xx and its operations for the year ended on that date.
Treasurer
Chairman
Date
Date
,
3.5.2 STATEMENT
NO.
2
(LOCAL
GOVERNMENT)
STATEMENT OF OPINION OF AUDITOR GENERAL
In this statement, the State Auditor-General for Local Government confirms that he has
examined and audited the financial statements on pages---------------------which have been
prepared under the accounting policies set out on pages--------------------------. His report
covers the following key areas:
1.
RESPONSIBILITY OF TREASURER AND AUDITOR-GENERAL
Here, the Auditor-General states categorically that the Treasurer is responsible for the
compilation and supervision of the accounts of the Local Government Council in
accordance with the appropriate section of
the Finance (Control and Management)
Act 1958 as amended. He equally states that it is his responsibility to
audit
and
form an independent opinion on the financial statements he has audited.
2.
THE SCOPE OF MY AUDIT
The Auditor-General states clearly that he has conducted the audit in accordance with
the generally accepted auditing standards. The approach and methodology adopted
for the audit is also be stated.
3.
OPINION
The Auditor-General certifies whether the financial statements present fairly the
financial position of the Local Government Council as at 31st December, 20xx in
accordance with the appropriate section of the Audit Act 1956 as amended.
228
3.5.3 AUDITOR-GENERAL FOR LOCAL GOVERNMENT
DATE
STATEMENT NO.3
LOCAL GOVERNMENT COUNCIL
CASH FLOW STATEMENT FOR THE YEAR ENDED 31 ST DECEMBER
NOTES
CURRENT
PREVIOUS
YEAR
YEAR
^’000
^’000
Cash Flows from Operating Activities
Receipts
Internally Generated Revenue
3
X
X
Grants/Subventions
4
X
X
VAT
5
X
X
Statutory Allocations
6
X
X
Miscellaneous
7
Total Receipts
X
X
X
X
Payments
Personal Emoluments
8
(X)
(X)
Education Services
X
(X)
Transport Services
(X)
(X)
Health Services
(X)
(X)
Mining & Petro-Chemical Services
(X)
(X)
Agricultural Services
(X)
(X)
(X)
(X)
Other of General Nature
9
Total Payments
Net Cash Flow from Operation Activities
(X)
(X)
X
X
Cash Flow from Investing Activities
Purchase/Construction of Assets
10
(X)
(X)
(X)
(X)
Proceeds from Sales of Assets
X
X
Net Cash Flow from Investing Activities
X
X
Purchase of Financial Market Instruments
229
Cash Flow from Financing Activities
Proceeds from Loan & Other Borrowing
11
X
X
Dividends Received
12
X
X
Repayment of Loans
13
X
X
Net Cash Flow.from Investing Activities
X
X
Net Increase/(Decrease) in Cash & Its Equivalent
X
X
Cash & Its equivalent at l/t/20XX
X
X
Cash & Its equivalent at 31/12/20XX
X
X
The accompanying notes are an integral part of these statements.
3.5.4 STATEMENT NO. 4
---------------------------LOCAL GOVERNMENT COUNCIL
STATEMENT OF ASSETS AND LIABILITIES FOOR THE YEAR ENDE D 31 ST
DECEMBER, 20XX
ACTUAL
NOTES
CURRENT
PREVIOUS
YEAR
YEAR
^’000
^’000
ASSETS
Cash and Bank Balances
14
XX
XX
Investments
15
XX
XX
Advances
16
XX
XX
Others
17
XX
XX
XXX
XXX
Liabilities
Deposits
18
XX
XX
Loans
19
XX
XX
General Revenue Balance
20
XX
XX
XXX
XXX
The accompanying notes are part of these statements.
230
3.5.5 STATEMENT NO. 5
----------------------------LOCAL GOVERNMENT COUNCIL
STATEMENT OF REVENUE AND EXPENDITURE FOR THE YEAR ENDED 31ST
DECEMBER, 20XX
ACTUAL
NOTES
BUDGET
ACTUALVARIANCE
PREVIOUS
CURRENT
CURRENT
YEAR
YEAR
YEAR
^’000
^’000
^’000
xx
xx
x
xx
Opening Balance
xx
Rates
21
xx
xx
x
xx
Fines, Fees and Licences
22
xx
xx
x
xx
Earnings and Sales
23
xx
xx
x
xx
Rent on Government Property
xx
Interest and Dividends
24
xx
xx
x
xx
Taxes
25
xx
xx
x
xx
Statutory Allocation
26
xx
xx
x
xx
Miscellaneous Revenue
xxx
Total Revenue
xx
27
(a)
xx
xx
x
xx
x
xxx
xxx
x
Less: Expenditure
xx
General Administration
28
xx
xx
x
xx
Health and Environment
29
xx
xx
x
xx
Works and Housing
30
xx
xx
x
xx
Education
31
xx
xx
x
xx
Agriculture and Social Development 32
xx
xx
x
xx
Grants and Subsidies
xx
xx
x
xx
Capital Projects
xx
Miscellaneous Expenses
xxx
Total Revenue
xxx
Operating Balance
33
34
35
xx
xx
x
xx
xx
x
(b)
xxx
xxx
x
(a)-(b)
xxx
xxx
xx
The accompanying notes are an integral part of these statements.
231
3.5.6 STATEMENT NO. 6
NOTES TO THE FINANCIAL STATEMENTS
The notes to the Financial Statements include a section stating clearly the accounting policies
adopted in the preparation of the financial statements. Notes to the accounts are normally
presented in the following order:
1.
Statement of Compliance with any known standards
2.
Statement of accounting policies applied
3.
Supporting information for items presented on the face of the Statements in the order
in which each line is presented; and
4.
Other disclosures or relevant supporting statements which may include all the
following:
3.6
a.
Statement of Revenue Analysis by Head
b.
Statement of Expenditure Analysis by Head
c.
Statement of Project Payments Summary
d.
Statement of Grants and subsidies; and
e.
A year-end manpower statement
AUDITING IN THE LOCAL GOVERNMENT
The audit of Local Government Councils is provided for in the Model Financial Memoranda
for Local Governments. The Memoranda make provision for both external and internal
auditing. The External Internal auditing is carried out by the states Auditor General for Local
Government of that state while an internal audit department in each local government council
handles the internal audit.
3.6.1 Auditor General for Local Government
According to the provisions of the financial memoranda, there shall be established in each
state, the office of Auditor General to e appointed by the Governor of the state. The following
are the functions and powers of the Auditor General for Local Government:
1.
Power to carry out the audit of accounts of all the local government councils in the
state on a regular basis.
232
2.
Power sanction and surcharge any officer as specified in the financial
Memoranda.
3.
Power to function as the chairman of the Local Government Audit Alarm Committee.
4.
To notify the Public Accounts Committee and the Local Government Audit Alarm
Committee on issues relating to serious audit queries for which the Accounting
Officer of the local government is liable, and other alarms of significant importance.
5.
Inform both the public accounts committee, the Local Government Chairman and the
governor in writing where a Local Government Accounting Officer does not respond
within the stipulated time to a query that affects his office.
6.
Power to impose necessary fin or punishment where the failure to answer an audit
query is by an officer or chairman of a Local Government Service Commission. The
erring officer, however, has the right of appeal to the public Accounts Committee.
3.6.2 The Local Government Audit Alarm Committee
By section 39.2 of the Financial Memoranda for Local Government, the audit alarm
committee comprises of the following members:
1.
The state’s Auditor General for Local Government
2.
A representative of the state government usually the Director for Local
Government Matters.
3.
The Representative of the office of the Accountant General of the state
The Financial Memoranda for Local Government make it the individual and joint
responsibility of the above officers to alert the Local Government Audit Alarm Committee
before any irregular or illegal payments are made.
233
ILLUSTRATION 1
The following balances were extracted from the books of TRUMP STATE GOVERNMENT
OF NAIJA as at 31s' December, 2000:
1999
2000
^'000
^'000
644,997
Statutory allocation
119,102
Value
Added
4,841,017
Tax
160,133
Generated
498,843
Collection
403,020
Internally
Revenue
58,256
Other Revenue
79,397
490,110
Personnel Cost
1,170,666
280,095
Overhead Cost
739,646
137,081
Consolidated
Revenue
382,936
Fund Charges
246,400
Other Capital Receipts
394,969
Capital Expenditure
591
379,237
2,753,553
Other Fund Deposits
591
28,288 '
Cash at Bank
69,604
67,799
Deposit with Banks
62,772
Investments
27,987
11,252
Advance
74,474
740,352
Additional Information provided:
i. The following amounts expended on unfunded Internal Debt Servicing have
been included in the Consolidated Revenue Fund Charges:
^ (000)
1999
36,970
2000
45,364
Any surplus/deficit on Revenue Account is transferred to the Capital Account as
appropriate.
234
You are required to prepare:
(a)
Recurrent and Capital Accounts
(b)
Statement of Assets and Liabilities for the year ended 31s' December,2000
N.B. Show comparative figures. (Adapted from ICAN PE1 2002)
TRUMP
STATE
GOVERNMENT
CONSOLIDATED
FINANCIAL
STATEMENTS FOR THE YEAR ENDED 31ST DECEMBER 2000
RECURRENT ACCOUNT
1999
2000
Recurrent Revenue
^ (000)
^ (000)
Statutory Allocation
644,997
4,841,017
Value Added Tax
119,102
160,133
Internally Generated Revenue
403,020
498,843
58,256
79,397
Other Revenue
(A)■1,225,375
5,579,390
Recurrent Expenditure
Personnel Cost
490,110
1,170,666
Overhead Cost
280,095
739,646
137,081
382,936
(B) 907,286
2,293,248
Surplus/(Deficil) to Capital a/c. (A- 318,089
3,286,142
* Consolidated Revenue Fund Charges
B)
CAPITAL ACCOUNT:
Transfer from Recurrent Account
318,089
3,286,142
Other Capital Receipts
246,400
379,237
564,489
3,665,379
Capital Expenditure
(394.969)
(2.753,553)
Capital Development Fund c/f.
169,520
♦Internal Debt Servicing Component
91 1,826
36,970
43,364
1999
2000
of the Consolidated Revenue Fund
Charges.
RECURRENT ACCOUNT
235
STATEMENT OF ASSETS AND LIABILITIES FOR THE YEAR ENDED 31ST
DECEMBER, 2000
LIABILITIES
Public Funds -
1999
2000
^ (000)
^ (000)
169,520
911,826
C.R.F.
Other
Funds
591
591
Deposit
170,111
912,417
ASSETS
Cash at Bank
28,288
69,604
Deposit
67,799
740,352
Investments
62,772
27,987 "
Advance
11,252
74.474
170,111.
912,417
with
Banks
4.0
SUMMARY
This unit discussed accounting in local government councils in Nigeria. The Local
Government is the ‘third-tier’ Administration in Nigeria. As a tier of government, local
government councils are supposed to autonomous and independent of the federal and state
governments. The functions of local government councils are well spelt out in the Fourth
Schedule of the 1999 constitution. `
The officers who are directly or indirectly connected with finance and accounting functions
in local government councils are: (i) The Chairman, (ii) The Director of Finance/Treasure to
the Local Government, (iii) The Director of Budget, Planning, Research and Statistics, (iv)
Revenue Officers. All Revenue Officers in the Local Government are under the Treasurer.
They collect revenue, account for them and render returns to the Local Government Treasurer
236
in accordance with the provisions of the Financial Memoranda and other existing Financial
Regulations.
There are three sources of revenue of a Local Government Council. These are: (1) Statutory
Sources of Revenue, (ii) Permissive Sources of Revenue; and (iii) Incidental Sources of
Revenue. There are three statutory sources of revenue for local government councils and they
are: (i) Federation Account: All the local governments in the country are entitled to a share of
the
Federation Account of 20.60%. (ii) States Internally Generated Revenue: 10% of the
a State’s internally
state
generated revenue is distributed to the local government councils in the
Each State Government, by virtue of paragraph162(7) of the 1999 Constitution, pays
10% of its internally generated revenue to the Joint Local
be shared among the Local Government
Government Council Account, to
Councils under the State’s supervision. Such
revenue is shared, based on a number of considerations such as population and level of
development and (iii) Fees and other charges imposed by the Council under its instrument of
creation and Acts of Parliament promulgated from time-to-time.
The Permissive Sources of Revenue are the levies collectible by local government councils
under Act No. 21 of 1998. The Incidental Sources of Revenue are sources that are incidental
to or arising from the operations of a local government council. Their scope is not defined by
statute. They include (1) Proceeds from economic projects undertaken, such as farming, (2)
Grants from the Federal or State Government, (3) Investment incomes, e.g. interest and
dividends received, (4) Proceeds of sale of seized goods, boarded vehicles, etc. (5) Donations.
Section 32.7 of Model Financial Memoranda for Local Governments, 2009 specifies the
following financial statements for local government councils in Nigeria: (i) Statement No. I:
Statement of Financial Responsibility, (ii) Statement No.2: Statement of Opinion of
Auditor General for local government, (iii) Statement No.3: Cash Flow Statement,
(iv)Statement No.4: Statement of Assets and Liabilities, (v) Statement No. 5: Statement
of Revenue and Expenditure, and (vi) Statement No. 6: Notes to the Financial
Statements
The audit of Local Government Councils is provided for in the Model Financial Memoranda
for Local Governments. The Memoranda make provision for both external and internal
auditing. The external auditing is carried out by the states Auditor General for Local
Government of that state while an internal audit department in each local government council
handles the internal audit.
237
5.0
CONCLUSION
In this unit, you have learnt about the functions and officers of Local Governments which is
the closest tier of Government to the grassroot. You were also taught about the books of
account prepared as well as the role of internal and external auditors.
6.0
TUTOR MARKED ASSIGNMENT
1.
List five financial statements prepared by local governments as specified by the
Model Memoranda for Local Governments, 2009.
2
List ten (10) responsibilities of the Treasurer of Government.
3.
What are the statutory, permissive and incidental sources of revenue available to local
governments?
7.0
REFERNCES/ FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition
3, Lagos: Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited
FGN (2009) Model financial memoranda for local government, Abuja: States and Local
Government Affairs Office, The Presidency.
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
NOUN ( ) Elements of public sector accounting: Course guide, Lagos: NOUN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
238
UNIT 4
GOVERNMENT BUDGETING 1
CONTENT
1.0 INTRODUCTION
2.0OBJECTIVE
3.0 MAIN content
Disadvantages of Zero Based Budgeting
Planning, Programming and Budgeting System (PPBS).
3.1.1
Definition of Planning ,Programming, and Budgeting System
3.1.2
Examples of Planning, Programming, and Budgeting System
3.1.3
Advantages of Planning, Programming and Budgeting System
3.1.4
Disadvantages of Planning. Programming and Budgeting System
3.1.5
Differences between Zero-Based Budgeting and Planning,
Programming And Budgeting System
3.2 Rolling Budgets
3.2.1 Advantages of Rolling Budget
3.2.2 Disadvantages of Rolling Budget
4.0 SUMMARY and CONCLUSION
5.0 TUTOR ASSIGNMENT
6.0 REFERENCES
1.0
Introduction
In this unit, you will learn about budgeting and control in the public sector. You will also
learn the meaning of budget, it’s types, uses, preparations and implementations in the Public
Sector.
2.0 Objectives
After studying this unit, you will be able to:
1.
Understand the meaning of budget and the purpose of a government budget.
2.
Appreciate the different methods of preparing budgets in the public sector
3
State the advantages and disadvantages of the different methods of preparing budget
239
3.0 Main content
3.1
Meaning of Budget
3.2
Functions of a public budget
3.3
Methods of budgeting in the public sector
3.4
Line Item Budgeting
3.2.3 Advantages of Line item budgeting
3.2.4 Disadvantages of Line-Item' Budgeting
3.5 Incremental Budgeting
3.5.1
Advantages of Incremental Budgeting
3.2.5 Disadvantages Incremental Budgeting
3.6
3.7
Zero Based Budgeting
3.6.1
Advantages of Zero Based Budgeting
3.6.2
Disadvantages of Zero Based Budgeting
Planning, Programming and Budgeting System (PPBS).
3.7.1
Definition of Planning ,Programming, and Budgeting System
3.7.2
Examples of Planning, Programming, and Budgeting System
3.7.3
Advantages of Planning, Programming and Budgeting System
3.7.4
Disadvantages of Planning. Programming and Budgeting System
3.7.5
Differences between Zero-Based Budgeting and Planning,
Programming And Budgeting System
3.8
Rolling Budgets
3.8.1
Advantages of Rolling Budget
3.8.2
Disadvantages of Rolling Budget
4.0
Summary
5.0
CONCLUSION
5.0
Tutor Marked Assignment
6.0 References/Further Reading
3.1. Meaning of Budget
Budget at first has a narrow meaning. Long ago in the United Kingdom, the word "Budget"
was used to refer to a leather bag in which the king's treasurer (the Minister of Finance) carry
the document explaining the country's needs and resources whenever he went to parliament.
240
After sometime, it came to be redefined to not only as the bag but also to its contents - the
government's financial plan with the supporting statements of Accounts.
Since then there has been many definitions of budget. According to Fremgen (1973:144), a
budget is "a comprehensive and coordinated plan, expressed in financial terms, for the
operations and resources of an enterprise for some specific period in the future. Also, the
CIMA Official Terminology define budget as a plan expressed in money. It is prepared and
approved prior to the budget period and may show income, expenditure and the capital to be
employed".
Thus, the government or public budget is a plan of the government’s intention of attaining
specified objectives. From the foregoing the following basic elements of a budget stand out
significantly (Emeni, et al , 2008)
i.
It is coordinated and comprehensive plan.
ii.
It is expressed in monetary or financial terms.
iii.
It is a plan for the use of government’s resources in its operations.
iv.
It is for a specified period in the future (usually a year).
3.2
Functions of a Public Budget
Some of the functions of a public budget are:
1) It is used as an instrument of economic and social policy. The various provisions in the
budget are used to control social and economic variables like inflation rate, price stability, income distribution, unemployment rate, wasteful consumption, and expansion of
industrial capacity etc.
2) It is used as a planning tool. This is probably the most important feature of a budgeting,
planning and control system. Budgeting forces the government to look ahead and set
out how the scarce resources expected to be received during the plan period will be
allocated among the competing needs.
3) It is used as a means of communication. The budget serves as a very effective
instrument of communication between the government and the governed. It is also a
means by which the government informs the citizens its diagnosis of the problems
facing the nation and its proposed means of solving them.
241
4) The public budget serves as a legal document. Everything about the government
revolves around the budget. As explained earlier, the government cannot spend any
money without its approval in a budget.
Self- Assessment Exercise
1. What are the functions of a public budget?
3.3
Methods of budgeting
There are different types of budgets. Within the framework of government budgeting the
following types of budgets are clearly identifiable:
(1)
Line-item budgeting (traditional) budgeting.
(2)
Incremental budgeting.
(3)
Zero- Based Budgeting (ZBB).
(4)
Planning, Programing and Budgeting System (PPBS)
(5)
Rolling budgets.
3.4
Line-Item Budgeting
The method of preparation of the annual budget could depend on:
(i)
Whether the emphasis is on the nature of the income and expenditure
(ii)
The purpose of the expenditure
If the budget is prepared based on the nature of the income and expenditure, the method is
referred to as line item budgeting. If it is based on the purpose of the expenditure, it is
referred to as program budgeting. Line item budgeting is the most common government
budget format in Nigeria. It involves voting money for each item or service the ministry or
department intends to carry out. A typical, line-item budget would consist of a statement like
this.
242
Ogiedu Local Government Budget, 2014
^'000
^'000
Expenses:
Employees
XX
Running
XX
Expenses
XX
Debt Charges
XX
Revenue Contribution to Capital Budget
XX
XXX
Income
Government Grants Sales
XX
Fines and Charges
XX
Rents
XX
Interest
XX
Miscellaneous Income
XX
XXX
Balance to be met from tax rates
XX
This type of statement obviously fail to identify the amounts allocated to individual services.
As a result, it would fail to show the planned level of activity for each service.- The technique
toward the allocation of funds and the monitoring and control of expenditure against
allocations. Under line item budgeting, the budget is divided on the basis of department
activity centers, each of which may operate several programs either individually or jointly.
3.4.1 Advantages of Line Item Budgeting
i. It helps to control fraud by limiting expenditure to the amounts and to items voted in
the budget.
ii. It provides flexibility when across the board cuts have to be made for macroeconomic purposes.
iii. It is simple to operate. A lot of Nigerians will be able to understand it.
iv. It aids planning and comparison.
243
3.4.2
Disadvantages of Line Item Budgeting
(i)
The focus is on department and expenses and not on outputs.
(ii)
It does not concern itself with policy matters.
(iii)
The time projected does not always conform to actual
(iv)
There is rigidity in adjustment leading to waste o'
3.5
Incremental Budgeting
This is a budgeting approach in which the current year’s estimate of income and expenditure
are used as the starting point for ascertaining the budget for the next year. Under the system,
attention is focused on whether the amount currently voted for it is reasonable rather than
whether the item is still required. Thus once an item appear in the budget, only incremental
changes in the item are considered as its appearance in subsequent budgets is taken for
granted. Attention is therefore focused on the marginal or incremental difference between this
year's budget and last year’s budget rather than on the whole of the budget. This is what gave
rise to the term ‘Incremental Budgeting’.
3.5.1 Advantages of Incremental Budgeting
i. Most of the activities carried out in previous years are either mandatory, or are so
crucial to meeting organizational goals, that they must continue every year. It seems
sensible, therefore, to concentrate only on the changes from the previous year,
because these light be all that are controllable.
ii. Another advantage is the bounded rationality argument. This arises as a result of the
complexity of the budgetary process. To make a
thorough
analysis
of
every
existing program and activity would be impossible, and it is only by limiting
discussion to the relatively small changes that are proposed that the budgetary process
will work. It is argued that the limits on decision makers knowledge, in
formation,
and cognitive ability mean that aide to calculation such as incremental budgeting are
necessary.
iii. Incremental budgeting narrows the areas open to dispute, thereby reducing conflict.
By focusing on incremental changes arguments over budgeting allocations are confined to relativity small amounts.
244
iv. Incremental budgeting is consistent with the principle of conservatism. The question
of conservative approach to budgeting is really a variation on the bounded rationality
theme. Because of the inability to foresee the full consequences of change, it is argued
that these changes should take place gradually rather than all at one.
3.5.2 Disadvantages of Incremental Budgeting
i. It is usually prepared for a short period of time.
ii. It does not lend itself creditably to monitoring.
iii. It is based on financial inputs and not on the output of services, which these inputs
are intended to serve.
iv. It is not continuous throughout the year. This creates distortions to the utilization
of staff.
Self- Assessment Exercise
1. State the advantages and disadvantages of incremental budgeting.
3.6
Zero Based Budgeting (ZBB)
In its form, it means precisely what the name implies i.e. preparation of budgets from a zero
base. Resources are not necessarily accounted for on the basis of previous patterns. It starts
from the basic premise that the budget for next year is zero. Every process or expenditure has
to be justified in its entirety in order to be included in the next year's budget. The manner in _
which the expenditure both helps to meet objective and benefits the organization is a forward
looking approach as opposed to the method of extrapolation of past activities and costs, a feature of incremental budgeting.
ZBB is a systematic budgeting system, which requires five basic stops in its implementation
(Emeni, et al, 2008):
1. Specify the Decision Units:. Managers within the organization are requested to specify
the decision units within their area of authority. A decision unit is a program of work or
capital expenditure program or area of activity, which can be individually evaluated.
2. Define Decision Packages: A decision package is a document, which identifies and
describes the specific activity in such a way that
245
There are basically two types of decision packages:
(a)
Mutually Exclusive Packages: Each of these contains an alternative method of
getting the same job done. The best option among the packages must be seated
by cost benefit analysis and the other packages are then discarded.
(b)
Incremental Packages: These divide one aspect of work or activity into
different levels of effort. The base package will describe the minimum amount
of work that must be selected by cost-benefit the activity and the other
(packages describe what additional work could be done, at what cost and for
what benefits.
3
Evaluate and Rank Packages: Each activity (decision package) is evaluated and
ranked on the basis of its benefits to the organization.
The ranking process provides managers with a technique to allocate scarce resources between
different activities. In carrying out ranking the following points are relevant. Minimum work
requirements will be given high priority. Also work, which meets legal obligations, will be
given priority.
4
Drop Unworthy Activities: Activities that would cost more than they are worth (in
qualitative or quantitative terms) are dropped.
5
Allocate Resources: After dropping unworthy activities, the resources in the budget
are then allocated according to the funds available.
3.6.1 Advantages of Zero Base Budgeting
1. It does not assume that last year's allocation of resources is necessarily appropriate for
the current year.
2. It forced managers at all levels to identify their-specific objectives, to quantify them,
and to evaluate the cost effectiveness of the alternative ways of achieving them. The
belief is that this improves the quality of management decision.
3. It created a questioning attitude rather than line item or incremental methods, which
assume that current practice maximises, expected money value. Wasteful spending is
thereby reduced.
246
4. It provides a yardstick for the measurement of performance.
5. It encourages greater participation by managerial decision and lower levels and
develops a more critical and better-motivated approach by them.
3.6.2 Disadvantages of Zero Based Budgeting
(1)
Problem of identifying suitable decision units.
(2)
Problems of producing suitable decision packages, which are self-contained and
understood by managers.
(3)
Short-term benefits might be emphasized to the detriment of long-term benefits.
(4)
It is a call for management-skills in decision analysis (to construct decision packages),
which the organization may not possess.
(5)
A large amount of staff time, and organization is necessary to introduce the system.
In conclusion it can be said that ZBB is good for capital projects. It is not w\o good for
recurrent expenditure. It has not been successful in the public sector in Nigeria. (Emeni, et al,
2008)
3.7
Planning, Programming and Budgeting System
Under the traditional budgeting system in the public sector in Nigeria, the budget is organized
into votes. The votes are subdivided into heads and subheads. These are further subdivided
into line items of expenditure. The traditional method of budgeting has failed to answer some
basic questions such as:
1.
What are the government's objectives for each subdivision of the budget?
2.
How do different parts of the budget relate to each other and the fulfilment of
government
objectives?
3.
How eft the budgeted figures relate to longer-term plans?
4.
What is the government expecting to achieve with the budgeted money? The
traditional budget is more concerned with financial outputs than with what those inputs are
designed to achieve. This h3 led to the development of the planning, programming and
budgeting system.
247
3.7.1 Definition
PPBS have been variously defined. However, for our present purpose, we shall see it as a
budget system, which is concerned essentially with assessing the efficiency of government
activities and measuring their performance in physical as well as financial terms. It is a
budgetary process designed primarily to make government and public corporations activities
more effective and more efficient.
PBS comprises five basic elements:
Programming: this is the subdivision of government budget into activities and
i.
programs representing identifiable units with similar aims and operations.
Identification of objectives of each program, budgeting and accounting so that
ii.
separate costs and revenues of each programme and activity are shown.
iii.
Measurement of the outputs and performance of the activities so that these can be
related to their cost, and operational aims.
Using the resultant data to establish standards and norms so that costs and
iv.
performance can be evaluated and government resources wore efficiently.
Some writers differentiate program budgeting from performance budgeting. The former
(program budgeting) comprises only the first three while the later consist of all the elements.
3.7.2 Example of a PPBS: An example of PPBS for a proposed housing program of
government is as follows:
i.
Objective: The objective might be the reduction/elimination of homelessness with
priority for specific groups e.g. the low-income group.
ii.
Program: This involves the type of houses that will be constructed such as:
a.
Local authority houses
b.
Hostels
c.
Plats
d.
Duplexes, etc.
248
(iii)
Output: This is a listing of the number of houses and the types that are proposed to be
built.
(iv) Alternative Approaches: This will outline the various options open to government.
(a)
Building more flats
(b)
Whether the houses will be provided directly by the government 0r through the
private sector.
(c)
Converting older buildings to model ones.
(v)
Establishing the resources required to carry out the program.
(vi)
Completion of the Budget
(vii)
Measure performance to see to what extent the objectives have been achieved.
3.7.3 Advantages of PPBS
(1)
It provides information on the objectives of government.
(2)
It cuts across conventional lines of responsibility and departmental structure by drawing
together the activities that are directed towards a particular objective.
(3)
It exposes programs that are overlapping or contradictory in terms of achieving
objectives.
(4)
It concentrates on long-term effects, along with short-term operational needs.
(5)
It enables resource allocation choices to be made on the basis of benefit/costs.
3.7.4 Disadvantages/Problems of PPBS
i. The PPBS was initially designed for the U.S. department of defense. While it may be
possible to define defense programs in specific terms, the same cannot necessarily be
said for other areas of concern in the public sector.
ii. Resistance to change may be encountered particularly among elderly officers.
249
iii. The PPBS is information intensive. It is necessary for example, to state the cost and
benefit of every project as well as to define objectives. This may create information
overload.
iv. Time constraint. The budgeting cycle of one year is too short a period to generate and
analyze all the necessary information required.
v. Insufficient and unreliable database confronting most developing countries. This
problem has led to misplaced priorities and lopsided distribution of amenities in most
developing countries.
3.7.5 Differences between Zero-Based Budgeting and Planning, Programming And
Budgeting System
Some of the differences between ZBB and PPBS are:
(1)
ZBB appraisal can rank projects using cost benefit analysis whereas PPBS does not.
(2)
ZBB allocates resources to each of the projects based on their rankings.
(3)
PPBS analyzes the output of a given program in terms of the objectives. On the other
hand ZBB describes each decision unit as a decision package which are easily
achievable.
(4)
PPBS identify and examine the goals and objectives in each area of government
activities. ZBB on the other hand will not only identify and examine them, but will
break them down into smaller achievable decision packages.
3.8
Rolling Budget
A rolling budget is an attempt to prepare budgets which are more realistic and certain
particularly with regard to price levels, by shortening the periods between preparing budgets.
A rolling budget is defined by the chartered Institute of Management Accountants (CIMA)
Official terminology as "the continuous updating of a short term budget by adding, say a
further month or quarter and deducting the earliest month or quarter so that the budget can
reflect current conditions. A rolling budget is called continuous budget".
Instead of preparing a period's budget annually for the full budget period, there would be
budgets every one. two, three or four months. Each if these budgets would plan for the next
250
twelve months so that the current budget is extended by an extra pe¬riod as the current period
ends: hence the name rolling budget.
3.8.1 Advantages of Rolling Budgets
1.
They reduce the element of uncertainty in budgeting.
2.
They force managers to reassess the budget regularly, and to produce budgets, which
are up to date in the light of current events and expectations.
3.
Planning and control will be based on a recent budget instead of fixed budget that
might have been made many months ago and which is no longer realistic.
4.
Realistic budgets are likely to have a better motivational influence on managers.
Control reports will measure performance that should have practical value & control
decisions.
5.
There is always a budget, which extends for several months ahead.
3.8.2 Disadvantages of the Rolling Budgets
1.
More time, money and effort are spent
2.
Frequent budgeting might have an off-putting effect on managers who doubt the value
of preparing one budget after another at regular intervals.
3.
Revision of the budget might involve revisions standard costs too, which in turn
would involve revisions of stock valuations. This could mean that a large
administrative effort is required in the accounts department every time a rolling
budget is prepared to bring accounting records up to date.
4.
If the expected changes are not likely to be continuous, routine-updating of the budget
is unnecessary.
4.0
SUMMARY
In this unit, you have learnt the meaning of budgeting, it’s uses, functions and types. We
discussed the various techniques of budgeting highlighting their advantages and
disadvantages
251
5.0
CONCLUSIONS
This unit examined the budgeting methods or techniques that could be used in the public
sector. It is mandatory for the executive in the public sector to prepare annual budgets which
are subject to the scrutiny of the legislature. The principal methods used in preparing the
annual budgets in Nigeria are the line-item method and the incremental method.
6.0
TUTOR-MARKED ASSIGNMENT
1.
What are the major differences between Planning, Programming and
Budgeting Systems and Zero Based Budgeting?
2
Describe the five basic steps that may be involved in budgeting for the
construction of housing units for civil servants using the zero-based budgeting
approach
7.0
REFERENCES/ FURTHER READING
Emeni, F.K., Ogiedu, K.O., Mgbame, C.O., and Erhagbhe, E. (2008) Public sector
accounting and finance, Vol. 1, Benin City: Mindex Publishing Company Limited
ICAN (2014) Public sector accounting and finance, Lagos: VI Publishers
252
UNIT 5:
GOVERNMENT BUDGETING 2
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1.
Budget preparation stages
3.1.1 The Drafting stage
3.1.2 The legislative stage
3.1.3 The implementation stage
3.1.4 The auditing stage
3.2 Delayed budget
3.3 Supplementary budget
3.4 Base estimates
3.5 Committed growth
3.6 Virement
3.7 Structure of the budget
3.8 Revenue budget
3.8.1
The purpose/function of the revenue budget
3.9 Capital receipts
3.10 Recurrent expenditure budget
3.11
3.10.1
Personnel cost budget
3.10.2
Overhead cost budget
3.10.3
Consolidated revenue fund charges
Capital budgets
3.11.1 The objectives of capital budgeting
3.11.2 The form of capital budgets
3.12 Capital receipts
3.13 Capital expenditure
3.14 Problems of public sector budgeting in Nigeria
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
253
1.0
INTRODUCTION
In this unit, you will learn about budget preparation in the public sector. You will learn about
the different phases of the budget preparation and implementation in the public sector. You
will also learn the structure of the public sector budget, which may be substantially different
from what obtains in the private sector. Finally, the problems on public sector budgeting in
Nigeria are also highlighted
2.0
OBJECTIVES
At the end of the unit, you would be able to:
1. Explain the Budget preparation stages
2. Appreciate the Structure of the government budget
3. Know the functions/purposes of the various components of the government budget
4. Understand the problems of public sector budgeting in Nigeria
3.0
MAIN CONTENT
3.1
Budget preparation procedure
The budget preparation procedure at the federal and state government levels could be divided
into four-broad stages, namely:
i.
The Budget Drafting Phase
ii.
The Legislative Phase
iii.
Implementation Phase
iv.
The Auditing Phase
3.1.1 The Budget Drafting Phase
The financial year in Nigeria is the same as the calendar year. The constitution vests the
preparation of the budget on the executive. The constitution did not, however, specify the
time frame at which the executive must submit the draft budget to the legislature. The
following procedures are adopted at the Budget-drafting phase.
254
1. The budgeting cycle begins with the articulation of the budget policies and objectives
by the President/Governors and the Executive Councils (Federal or State as the case
may be).
2. The budget department realizes these policies and objectives by coordinating the
budget formulation by the ministries. The budget department sends out call circulars
to ministries aimed at obtaining each ministry's estimates of revenue and expenditure
for the budget year.
3. The ministries prepare their respective under sub-headings of revenue and
expenditure, based on guidelines contained in the call circular.
4. The budget department then aggregates the estimates from the ministries into master
budget estimates of government. The ministry of Budget and planning sets up a
committee to do this. This committee is called the drafts estimate committee. Each
ministry defends its proposals before it. This phase of preparation and defense of
budget proposals by the ministries is sometimes called ministerial phase.
5
The Federal Executive Council (FEC) reviews the Federal Government Budget. The
President also presents the budget at the National Council of States to intimate the
state governors of the direction of the economy. (The State Government Budgets are
reviewed at the State Executive Council (SEC).
6
After the approval of the Federal Executive Council/State Executive Councils, the
budget is presented to the Legislature.
3.1.2 The Legislative Phase
The Legislative Consideration of the budget starts in the parliament after the presentation of
the budget by the executive (President/Governor). At the federal level, the presentation of the
budget to the National Assembly is done at a joint sitting of the Senate and the House of
Representatives. The following procedures are adopted:
i.
The Senate President/Speakers lay the budget 0n the floor for the first reading during
which there are debates on the general policy.
255
ii.
The budget document is, thereafter, referred to the appropriation committees of the
Houses after the first reading. Generally, the houses are organized on committee
basis, handling each ministry and other important areas of concern.
iii.
The Appropriation Committees then scrutinize the budgets through the sectoral
committees, which liaise with the respective Ministries to ascertain the
appropriateness of
their estimates. Each committee then prepare a final set of
suggestions indicating the amendments made in the draft budgets and submits to the
appropriation committee.
iv.
The Appropriation Committee then submits a report on the draft budget to the
Legislature.
The draft is then debated during the second and third readings in the
entire house.
v.
In the case of the National Assembly, a joint sitting of the two houses is called to
resolve differences (if any), arising from the two sets of reports. The harmonized
budget is then presented separately to the two Houses. Thereafter, there is a joint
sitting of the National Assembly to pass the bill, after which it is sent to the president
for assent.
3.1.3 The Implementation Phase
The executive arm carries out the implementation of the budget. The Executive normally
delegates the implementation to the various ministries/extra ministerial Departments. The
implication of this is that it is the civil servants who carry out the implementation of the
budget. Although the legislature is not involved in the implemen1""^ of the budget, there is
provision for parliamentarian super over budget implementation. This is to ensure
accountability, transparency and orderly implementation of the approved budgets. It is part of
the oversight function of the legislature.
3.1.4 The Auditing Phases
The constitution provides for the audit of all public accounts by the Auditor General. The
Auditor General submits the Audit Report directly to the legislature Arm. The functions of
the Auditor General and the Audit of Government accounts are dealt with in another section.
Self- Assessment Exercise
1. Discuss the various phases of a budget cycle.
256
3.2
Delayed Budget
As stated earlier, the constitution did not specify the time the president/Governor must
present the draft budget to the parliament in any year. Also there is no time limit for the
legislature to consider the draft budget submitted to it. The implication of the above is that
sometimes, the budget may not have been approved at the beginning of a financial year. In
this case the Executive has no budget to carry on the affairs of state. Section 82 of the 1999,
constitution makes provision for the withdrawal of money from the Consolidated Revenue
fund of the Federation necessary to carry on the services of the federation (Section 122 makes
similar provisions for the Governor of a state), pending approval of the budget.
The authority granted to the Executive is, however, subject to the following.
(1)
The period must not exceed six (6) months or until a budget is approval whichever
comes first.
(2)
Such withdrawals shall not exceed the amount authorized to be withdrawn (spent) for
the corresponding period in the immediately preceding financial year.
3.3
Supplementary Estimate
When during the year, it becomes obvious that the budget estimates would not be adequate, a
supplementary estimate may be prepared. An application for supplementary estimates is
usually made to the Ministry of finance. The Ministry of finance has the following options:
a)
to approve the application for a supplementary estimate.
b)
To approve the use of virement to provide the necessary funds.
c)
To provide funds from the contingencies funds.
d)
To refuse permission for the sums applied for.
If the decision is to use supplementary estimates, a bill is sent in that respect to the parliament
for approval. A supplementary budget passes through the same proceedings for approval as
the budget itself.
3.4
Base estimate
The base estimates for the current year is obtained by taking last year's budget and deducting
the value of non-repetitive transactions (or one-off transactions), that is, transactions which
do not occur every year.
257
3.5
Committed growth
In public sector budgeting, there are certain commitments made in that previous year or years
which are likely to impact on future expenditure. These are costs for which there are existing
obligations. An example of such a committed fixed cost is the salaries and other emoluments
of public officer. The somewhat fixed cost expenditure is known as committed cost.
3.6
Virement
The constitution requires that no money shall be -withdrawn from the consolidated revenue
fund except it is approved in a Budget. However, unforeseen circumstances may warrant
expenditures not listed in the budget. A way of solving the problem is through the preparation
of supplementary estimates as stated above. However, supplementary estimates take time,
which may not be available. A faster solution is the use of Virement. Virement is the transfer
of fund from one sub head to another. The following conditions apply to the use of virement
under section 408 of the financial regulations:
(i) It must be between two sub-heads under the same head.
(ii) It must not be used to create a new sub-head of expenditure entire house.
(iii) In the case of the National Assembly, a joint sitting of the two houses is called to
resolve differences (if any), arising from the two sets of reports. The harmonized
budget is then presented separately to the two Houses. Thereafter, there is a joint
sitting of the National Assembly to pass the bill, after which it is sent to the president
for assent.
3.7.
Structure of the Budget
There are four basic parts to the public budget:
a)
Recurrent Revenue
b)
Recurrent Expenditure
c)
Capital Receipts
d)
Capital Expenditure Capital Budget
}
Recurrent budget
}
Capital budget
258
The total budget or budget size is obtained by the combination of the Recurrent budget and
the Capital budget.
Revenue
(i)
Recurrent Revenue
x
(ii)
Capital Receipt
x
Total Revenue
xx
Expenditure
(iii)
Recurrent Expenditure
x
(iv)
Capital Expenditure
x
Total expenditure
3.8
xx
Revenue Budget
The revenue budget is a projection of the earnings of the government for the budget year. The
recurrent revenue is the routine and 'earned' revenue of the government. They do not include
borrowings and recovery of loans. On the other hand capital receipts are non-repetitive and
non-routine variety. Capital receipts changes the financial liabilities /assets of Government.
The Federal Government derives its revenue from the following sources:
1)
Indirect taxes
2)
Direct taxes
3)
License and internal; revenue
4)
Mining
5)
Earnings and sales
6)
Rent of Government property
7)
Reimbursements
8)
Armed forces (personal income tax)
259
9)
Miscellaneous
On the other hand, the sources of revenue included in the States Government budgets include,
inter alia, the following:
1)
Indirect tax
2)
Direct tax
3)
Fine and fees
4)
Licenses
5)
Earnings and sales
6)
Rent on Government property
7)
Interest, Repayment and Dividends
8)
Reimbursements
9)
Miscellaneous
10)
Statutory allocation from the federations account.
11)
Value added tax -
12)
13% mineral derivations (for states in the oil producing areas)
13)
Armed forces (personal income tax)
3.8.1 The purpose / function of the revenue budget
1)
To plan the cash flow of the government
2)
To identify the major sources of government revenue
3)
To determine the income to be received by the government
4)
To determine the weaknesses in the revenue generation base with a view to improving
on it.
5)
To make policies on the revenue generation of government
260
6)
To set targets of achievement for the various revenue centers.
7)
To provide a basis for the control of income and expenditure of government.
8)
To determine the expenditure budget which the revenue to be generated can
conveniently sustain.
Self- Assessment Exercise
1.
3.9
List the functions of a revenue budget.
Capital receipts
The capital receipts budget of a stated is usually made of:
(a)
Transfers from the Recurrent Budget surplus.
(b)
Transfer from general reserve.
(c)
Transfer from specific reserves.
(d)
Internal loans.
(e)
External loans.
(f)
Grants.
3.10
Recurrent Expenditure Budget
The recurrent expenditure budget is made up of three main heads.
a.
Personnel Cost Budget
b.
Overhead Cost
c.
Consolidated revenue fund charges
3.10.1 Personnel Cost Budget
The personnel cost budget is an estimate of the total basic salaries and allowances of the
various categories of staff in the employment of the public service. The government operates
a salary structure in which the salaries and allowances payable to the various cadres of staff
are well stated. In preparing the personnel cost budget the following basic steps are followed:
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1. The identification of the various positions in each ministry department of
Government.
2. Identification of the number of staff on each grade. The identification takes into
consideration the annual increment of one-step, promotion potentials and possibility
of fresh recruitment.
3
Identification of the grade level of each position. The government operate on grade
levels 01 - 17,which are subdivided into three cadres (i) management cadre (GL 13-17)
(ii) Senior cadre (GL 07-12) and Junior cadre (01 - 06).
4
The identification of the basic salary and the annual incremental salary
In preparing the budget for personnel cost, the call circular will normally indicate the steps at
which each cadre level should be budgeted. If the grade level is stated and no additional
information is given, it is assumed that there will be a step increase in salary. It is customary
for any department of ministry to seek clearance from the Department of Establishment
before making any budgetary provision for new recruitment.
A typical government salary grade level is written in the form (a x b) e.g. (N50.000 x 10,000)
where a = basic salary at step 1 of the particular grade level and b, the annual incremental
rate. The Implication of the above is that at any step in the grade level,
Salary
=
=
Salary + Increment
a + (x - 1)b
Where a
=
Salary on step 1
B
=
annual increment
x
=
the new step of the office
Using the above information, let us say N50,000 is the basic c salary on step 1 with an
incremental rate of N10,00. From thee information
262
above table of salaries can be drawn up as shown below:
Year 1
2
3
Salary 50.000 60,000 70,000
4
80,000
The salary on grade level four of the above grade level step is computed as follows using the
formula above
Salary
3.10.2
=
50,000 + (4-1) x 10,000
=
50,000+30,000 ',000
=
N80,000.00
Overhead Cost Budget
The overhead cost budget is presented in the same format as the revenue budget. And like the
revenue budget it is divided into heads and subheads. Overhead Cost items include:
(1)
Transport and travelling
(2)
Utility service (water, electricity, etc.)
(3)
Telephone and postal sen/ice
(4)
Stationary
(5)
Maintenance of office furniture and Equipment
(6)
Maintenance of vehicle and other capital assets
(7)
Consultancy services
(8)
Grants, Contributions and subventions to boards, corporations and parastatals.
(9)
Training and staff development
(10)
Entertainment and Hospitality
(11)
Contributions to international organizations.
(12)
Motor vehicle/cycle/bicycle advance
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The ministries/Agencies usually make token provisions for subheads where substantial
provisions may not be immediately required. Incremental system is used to make provision
for the various items in the overhead cost budget. Incremental provisions are usually made of
two parts (i) provision for increase in activity level (ii) provision for price inflation.
3.10.3
Consolidated Revenue Fund Charges
The third main head of the recurrent expenditure budget is the consolidated revenue fund
charges. These are standing services or charges, which are established by the constitution,
other statutes or contract. Though these charges are in the budget estimates, they are not
subject to the annual legislative debate or approvals. An example is the salary of certain
categories of Public officers contained in section 84(3) and (4) for the government of the
federation and sections 124(3)(4)and (5), for the states.
Typical consolidated revenue fund charges for a state government include the following:
(1)
Personal emoluments for the following statutory office holders.
(i)
High Court Judges
(ii)
Civil service commissioners
(iii)
Auditor General
(iv)
Customary Court Judges
(v)
Auditor General (Local Government)
(vi)
Judicial service commission
(vii)
Local Government service commission
(viii)
Independent Electoral Commission (State)
(ix)
Governor and Deputy Governor
(x)
House of Assembly Service Commission
(2)
Pension and Gratuities.
(3)
Public debt charges (internal and external loans.
264
(4)
Contractual obligations.
(a)
Repayment/Service of local Bank loansxv
(b)
Guaranteed loans
(c)
Internal debt services
(d)
Other contractual obligations.
(5)
State Government contribution:
(a)
Allocation of 10% of Internal Revenue of the State to Local Government Council.
(b)
Contribution to primary schools
(c)
State Government contribution to National Judicial 'Council fund,
(d)
State Government contribution to Local Government Fund Council fund,
3.11
Capital Budgets
Most public sector organizations make a distinction between items of a revenue or current
nature and items of a capital nature. The usual distinction between capital expenditure and
revenue expenditure is that capital expenditure provides benefit for more than one year. This
is known as the "period of benefit" principle. The benefit flowing from revenue expenditure
is limited to one year. Sometimes this distinction runs into problem. For example when the
principle is applied to such items as the cost of a new school or a new thermal power station,
it present few problems. On the other hand, there are situations where distinction is not too
clear particularly in the social service sector like the educational sector. For example, the
education of school children will provide benefits for many years ahead. This, however, does
not mean that the expenditure on teacher salaries is capital expenditure. The solution usually
provided by the government to this apparent dilemma it to prescribed certain types of
expenditure as capital and thereby provides an effective distinction. The capital Budget is
made up of capital receipt and capital expenditure.
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3.11.1
The Objectives of Capital Budgeting
Careful consideration of the capital expenditure is very paramount if a public sector
organization intends to fully achieve its fundamental aims and objectives. Some of the
objectives of capital budgeting are:
1. It is a major form of expression of the overall plan of the organization for the
development of its activities and services
2. A capital budget program is used to define the priorities between the services offered
by a public sector entity.
3. It is an essential tool for the assessment of the availability of capital resources such as
staff, land and finance.
4. State Government Contribution to Local Government Pension It enables a public
sector entity to take a coi^orate view of the need for capital expenditure in each area
of service provision.
5. It serves to meet the requirements of the Government's capital control system.
6. It serves to assess the extent to which an entity can meet the revenue consequences of
proposed capital projects.
7. It serves as an authority for the officers to undertake the action necessary to
implement individual capital projects.
Self- Assessment Exercise
1
Explain the objectives of a capital budget.
3.12.2 The Form of Capital Budgets
In the preparation of capital budgets, cognizance is usually taken of the long term effects of
capital budgets. The country presently operates a three tier planning system consisting of a
long-term perspective plan, the medium term rolling plans and the annual budgets. The
annual capital budgets are supposed to be derived from the rolling plans and the perspective
plans.
At the federal leve1, the National planning commission is charged with development
planning and the coordination of capital budgeting. At the state level, it is the responsibility
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of the state planning commissions. It is customary for the various ministries/extra ministerial
departments to send their advance proposals for capital expenditure to the planning
commission for consideration. The planning commission usually gives guidelines for the
preparation of the capital expenditure estimates.
The guidelines for the preparation of capital budgets by government entities usually include
the following, among others:
1. The Capital expenditure proposals are to be in harmony with set objectives and
priorities of the government.
2. Only projects and the programs within the relevant rolling plan period are expected to
be included in the current year’s capital budget.
3. The provision of an enabling environment for industrial development is sometimes
accorded priority.
4. Adequate financial proposals are usually made for the payment of counterpart funding
obligations in respect of externally assisted projects/programs.
5. Usually prime attention is given to on-going projects and program that are
fundamental to the sustenance of statutory responsibilities of ministries/ extra
ministerial agencies and those that can activate inter-sector linkages.
6. Also attention is also focused on the maintenance and rehabilitation of economic and
social infrastructure such as roads; water; electricity, education, health care delivery
etc.
3.12
Capital Receipts
Broadly speaking, capital receipts are those items, which are basically of non-repetitive and
non-routine variety. They can change government's financial liabilities/assets. Capital
receipts of the government may take many forms. The usual items of capital receipts in a
state government budget include:
1.
Transfer from consolidated revenue
a.
Transfer from General Reserve
b.
Transfer from specific Reserves
267
c.
Others
2.
Internal Loans
3.
External Loans
4.
Grants - from the Federal Government and international organization
5.
Miscellaneous
3.13
Capital Expenditure
A capital expenditure is one whose benefits are likely to flow in for a period of more than one
year. In Government budgeting, Capital expenditure is usually classified according to the
sector. Capital expenditure budget contains the estimated payments for the acquisition of new
assets. The payments normally exceed receipts (sales of assets) and the difference is the
amount that has to be found, either by borrowing or from a surplus on revenue account.
Capital expenditure budgets can be prepared for just one year, but many of the assets of
public sector organizations require long periods of construction. This means that several
years may elapse from initial design to completion.` This makes the preparation of capital
expenditure for at least the medium term very expedient. In preparing capital expenditure
budgets, there is need for a schedule of capital works showing the various stages of
completion of the individual capital projects and the amount that is expected to be completed
and paid for in the next three to five years.
The items included in the capital budget are therefore the planned capital assets acquisition
and disposals for the medium term planning period. The long term and medium term
financial plans will have provided information on the assets that need replacing and the assets
required for new activities and these are expressed in financial terms.
Typical items under capital expenditure budget for a state government in Nigeria include:
1.
Economic sector
a.
Agriculture
b.
Livestock.
c.
Forestry.
and Rural Development.
268
2.
3.
4.
3.14
d.
Industry.
`e.
Energy.
f.
Commerce, cooperative and finance.
g.
Commerce,
h.
Transport.
cooperative and finance.
Social Sector:
a.
Education.
b.
Health.
c.
Information.
d.
Social Development and Sports.
Environmental Development Sector:
a.
Water resources and water supply.
b.
Rural Water sanitation.
c.
Sewage and Drainage/Environmental protection.
d.
Housing.
e.
Town and Country planning.
f.
Community Development/Special area Developmen
General Administration:
a.
Administrative Buildings.
b.
Others.
Problems of Public Sector Budgeting in Nigeria
From the foregoing there are constitutional and statutory provisions on budgeting and budget
implementation in the Nigerian public sector. In spite of these, budgets implementation in
269
Nigeria, cannot .be said to be efficient or effective. A number of factors are responsible for
this.
1. Behavioral factors: The general level of corruption and indiscipline in the Nigeria
society plays an overriding that militates against effective budgeting and
implementation in Nigeria. Most public officers see budgeting as an obstacle to their
free access to public funds and therefore do whatever is in their power to frustrate its
efficient operation.
2. High degree of environmental turbulence: The high level of uncertainty in Nigeria
makes budgeting very difficult. With inflation running hyper, the purchasing power of
the naira keeps reducing. This makes budget implementation difficult.
3. Dearth of reliable data: Public sector budgeting is based primarily on the projection of
key sales, which is dependent on the dynamics of the world oil market.
4. Inconsistent government policies: Policy consistency seems not to be one of the
characteristics of present and past government regimes
in Nigeria. This hampers
good budget implementation.
5. Fiscal Indiscipline: The attitude of the average Nigerian in government is that, once
the budget is approved, it becomes ‘a sin’ not to spend the last kobo even if the
circumstances do not warrant such.
4.0
SUMMARY
In this unit, we looked at the various phases of a budget cycle. We also discussed the
different parts of a budget. The problems encountered in public sector budgeting were also
highlighted.
5.0
CONCLUSION
This unit concludes that the public budget is indeed very vital for the government operations.
The public budget is a legal document whose provisions must be complied with in the
execution of government programs and operations.
270
6.0
TUTOR-MARKED ASSIGNMENT
1
Describe the major steps in the preparation of the budget of the Edo State
Government
2
7.0
Discuss the problems of public sector budgeting in Nigeria.
REFERENCES/FURTHER READING
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., and Erhagbhe, E. (2008) Public sector
accounting and finance, Vol 1, Benin City: Mindex Publishing Company Limited
ICAN (2009) Public sector accounting and finance, Lagos: VI Publishers
271
UNIT 6
AUDIT OF GOVERNMENT ACCOUNTS
CONTENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Meaning and nature of auditing
3.2
Types of government audit
3.2.1
Financial audits
3.2.2
Performance audit
3.2.3
Other activities of government auditors or audit
institutions
3.2.4
Other classifications of audit
3.2.5
Interim audit
3.2.6
Final year audit
3.2.7
Continuous audit
3.2.8
Complete audit
3.2.9
Management audit
3.2.10
Internal audit
3.2.11
Balance sheet audit
3.2.12
System based audit
3.2.13
Vouching/ transaction audit
3.3
The legal framework of government auditing
3.4
Government auditing standards
3.5
The Auditor General: Appointment and removal
3.5.1
3.6
Functions of the Auditor General
The government internal auditor
3.6.1
Appointment and removal of the internal auditor
3.7
The Public Accounts Committee (PAC)
3.8
The independence of the government auditor
3.9
Auditing in the local government
3.9.1
Auditor General for Local Government
4.0 SUMMARY
5.0 CONCLUSION
272
6.0 TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0 INTRODUCTION
In this unit, you will learn of the meaning and nature of auditing, the different types
of audits available in the public sector and the legal framework of government
auditing. You will also learn about the Auditor General at both the federal, state and
local government levels including their functions as the procedures for appointing
and removing them. The unit also includes an examination of the Public Accounts
Committee (PAC) and the independence of the audit function.
2.0 OBJECTIVES
After studying this unit you should be able to:
1.
Understand the meaning and nature of auditing
2.
Identify the different types of audit
3.
Know the legal framework of government auditing and government auditing
standards in Nigeria
4.
Understand the functions, and the procedures for the appointment and
removal of the Auditor General.
5.
Understand internal auditing in the public sector including the functions, and the
procedures for the appointment and removal of the internal auditor.
6.
Know about auditing in the local government councils including the functions of the
Auditor General for Local Government
3.0
3.1
MAIN CONTENT
MEANING AND NATURE OF AUDIT AND AUDITING
Audit and auditing has been variously defined. According to Okolo (1988), auditing is a
conscientious and objective examination into any statement of account relating to money or
money worth with the underlying documents, and the physical assets where possible as, to
enable the auditor form an opinion, on whether or not the statement of account present a true
and fair view of whatever it purports to represent. Woolf (1994) sees an audit as a process in
which the accounts of business entities are scrutinized to enable the auditor to form an
opinion as to the truthfulness and fairness of the accounts. Adams (2005) sees auditing as a
273
process during which the accounting records and the financial statements of an enterprise are
examined by independent Auditors with the aim of expressing an opinion in accordance with
his term of appointment. From the above definitions, it is clear that the emphasis of an audit
is the formation of an opinion about the accounts and financial statements of an entity.
3.2
TYPES OF GOVERNMENT AUDIT
This section describes the types of audits that government and its parastatals may conduct.
The description is not intended to limit the type of audit that may be arranged. All audits
begin with objectives and those objectives determine the types of audit to be conducted. The
following types of audits, though not exhaustive are clearly discernible.
3.2.1 Financial audits
This include audit of financial statements and financial related issues. The objective of
financial statement audits is to provide reasonable assurance on whether the financial
statement of an audited entity presents a true and fair view of the financial position, the cash
flows and the result of operations of the entity.
Financial audits include among other things, the determination of whether:
i.
The Financial information presented comply with established or stated
criteria.
ii.
The entity has complied with the relevant regulations, or
iii.
The entity's system of internal control structure over financial reporting and or
safeguarding assets is adequate.
Financial audits include a audits of the following items:
a. financial statements or their segments; financial information; disbursements; and
budget variances.
b. Internal controls over compliance with regulations and laws.
c. Internal controls over financial reporting
d. Internal control over assets.
e. Allegations of fraud.
274
3.2.2
PERFORMANCE AUDITS
Performance audits include the following among others:
i.
i..
Efficiency and Economy audits
ii.
Audit of programs.
iii
Value for money audit.
Economy and Efficiency Audit
Efficiency and Economy audits include the following;
The determination of whether the entity’s acquisition, protection and use of its
a.
resources is carried out economically and efficiently;
b.
The reasons for wastages, uneconomical or inefficient practices;
c.
The determination of whether the entity has complied with the laws and regulations
on relating to economy and efficiency.
ii.
Program Audit
Program audits may apply to activities, functions, services as well as programs. They
include the following among others:
1.
Determination of the extent to which the desired results or benefits being achieved.
a. The effectiveness of the programs, activities, or functions of the organizations
b. Determination of whether the entity has complied with the laws and regulations
applicable to the program.
3.2.3
Other Activities of Government Auditors or Audit Institutions
Auditors may prefer services other than audits. Such activities may include the following:
1.
Development of the methods and approaches to be applied in evaluating a new
or a proposed program;
2.
Assistance in the development of questions for use at hearings by a legislative
body;
3.
Assisting in the Forecasting of potentials program outcomes.
4.
Performance of special investigative work.
275
3.2.4 Other Classifications of Audit
Other methods of classification of Audit are:
1.
2.
By timing of Audit work method approved
i.
Interim Audit
ii.
Year -End Audit or final Audit
iii
Continuous Audit
iv
Complete Audit.
Classification by of Method Appointment
i.
Private audit
ii. Management
iii. Internal
iv.
Audit
External Audit
v. Statutory
3
Audit
Audit
Classification by Method of Audit
i
Balance Sheet Audit
ii
System based Audit
iii
Vouching Audit
3.2.5
Interim Audit
These are audits usually carried out during the year but before the end of the financial year
of the entity. An interim audit could consist of several audit visits. The purpose of interim
audit may be primarily to examine the accounting and the internal control system. The
auditor can also carry out transaction and balance sheet audits during the period. Interim
audit may be on quarterly or semi-annual basis. They are usually carried out at the
instance of the management of an entity, in order to assist them in the preparation of
interim financial statements for the purpose of declaring a dividend or meeting the
requirements of the stock exchange.
Interim audit has the following advantages:
1.
It will help to facilitate the completion of the final audit.
2.
It is of assistance where the client publishes interim financial statements.
3.
It facilitates the early detection of fraud, error and other irregularities.
4.
The attendance of audit staff at intervals imposes a sound moral check on client's staff.
276
On the other hand, the following disadvantages are attributable to interim audit:
1. Already audited figures may be altered after the audit.
2. The audit team may lose the trend of events especially if it is not the same audit
team that comes on every occasion.
3.2.6 Final (Year-End) Audit
This is the annual audit, which is carried out at the end of the financial year. It is a
completed audit. Annual audit is a regular audit. It is governed by the constitution for the
various tiers of government and by relevant statutes for government corporations.
The effort in the final audit depends on the work done during the interim audit. Where
systems audit was undertaken, during the interim audit, the final audit will attend to the
balance sheet audit. Where on the other hand, both systems and substantive work was done,
the audit effort will be centered on systems and balance of the audit work for the period not
carried out by the interim audit.
3.2.7 Continuous Audit
A continuous audit is one in which the auditor visits the clients offices all year round
in the process of obtaining audit evidence, with transactions being audited as they
occur and are recorded. Continuous audit is carried in the following circumstances.
i
Where the volume of work is too large to be left till the end of the year.
ii
Where the client suggests it.
iii.
In a computerized environment with the probability of a fast loss of audit trail.
Continuous audit has the following advantages:
1.
It ensures a timely completion of the audit
2.
It offered the auditor the opportunity to audit some transact and balances while there
is still audit trail
3.
It assists in the prevention of fraud or their early detection
4.
It imposes a sound moral check on staff
5.
Audit staff may be used more effectively
6.
Work is more likely to be kept up to date
On the other hand has the following disadvantages
1. They are usually costly
2. They tend to interrupt the client's daily routine
3. They increase the chance of over auditing
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3.2.8 Complete Audit
This is an audit in which all aspects of the auditors examination of the clients records are
carried out during one visit. Complete audit arte carried out in one or more of the following
circumstances:
a.
Where the client is small
b.
Where the client suggests that only one visit be made
c.
Where the firm staff prepared the accounts for the client
d.
Where a complete audit is appropriate given the clients' year end data.
e.
Where generally it is more convenient for instance where the client is in a
town where the auditor has no office and staff have to travel there.
Complete audit has the following advantages
a. Work
can be carried out through to conclusion avoiding the necessity of
returning on separate occasions.
b. A
simplified timetable can be worked out for staff.
Complete audit has the following disadvantages
1
2
3.2.9
There might be delay due to extended work nature.
Difficulties due to the same financial year end of clients
Management Audit
This is carried out to assess the effectiveness and efficiency of management. It is a nonstatutory audit. It is an independent examination of the quality of the policies of the
management of an organization as well as the level of their execution against the background
of relevant environmental factors and conditions. It could cover any aspect of the
organizations policies and procedures.
Internal auditor, management consultants or teams selected for the purpose, usually carries it
out.
Management audit has the following advantages:
1
It provides feedback for, managers.
2
It discourages unhealthy and fraudulent management practices and procedures
3
It provides management and Board with a report of their performance.
4
It gives the board access to constructive advice.
5
It is usually for the basis for organizational turn around.
278
3.2.10
Internal Audit
This is an independent audit of the activities within an organization. It carries out a for the
review of the operations of the entity as a service to management. Internal audit it carried out
by an internal auditor who is a staff of the audited organization. It is a managerial control
mechanism. Internal auditing is discussed in a later section.
3.2.11
Balance Sheet Audit
Balance sheet audit is geared towards verifying the assets and liabilities of the enterprise in
order to obtain audit evidence that these items are fairly stated. The balance sheet is taken as
the starting point from where we work - back to the detailed entries in order to substantiate
each entry in the balance sheet.
3.2.12
System Based Audit
System based audit is directed towards recording, testing and evaluation of the internal
control; system in operation to enable the auditor determine the extent to which he can place
reliance on the control system.
The auditor in a system-based audit usually adopts the following procedures:
1. He draws up an audit plan
2. He ascertains the clients system of accounting and internal control and documents it.
3. He carries out an assessment of the reliability of the system as a basis for the preparation
of financial statements expected to show a true and fair wiew«nd lakes a decision
whether to rely on the system or not.
4. Where the system is good and he decides to rely on it, he carries out compliance tests
with a view to confirming whether the system is operational in practice. Where the tests
show that the system was operational, he will, in line with the level of reliance he has
planned, appropriately reduce the extent he will go on seeking evidence of the validity,
accuracy and completeness of the information in the financial statement.
5. Where either he decided not to rely on the system or the result of compliance tests show
that the systems although reliable was not operational during the period, he will proceed
to extend the amount of evidence he will seek in verifying the validity, accuracy and
completeness of the information in the financial statement.
279
The system based audit is contrast to the vouching audit, in which the auditor does not
consider the quality of the system, but goes straight to obtain audit evidence on the basis of
checking to be done. It reduces the chances of over auditing and enforces more discipline on
the audit / process and efforts.
3.2.13 Vouching Transaction Audit
These are audits, which involve the review of the transactions of an entity within periods of
time in order to ascertain the completeness, accuracy and validity of the transactions. It
involves the examination of the documents offered and the explanation given in
substantiating the entries in the accounting record.
Vouchering or transaction audits involves:
1.
Inspection of receipts and documents
2.
Comparing these documents and receipts with the corresponding entries.
3.
Verification of the accuracy and correctn ess of the entries.
4.
Ensuring the entries are in order properly authorized and correctly recorded.
3.3
The legal frame work of government auditing
Under the present democratic setting in Nigeria, the constitution is the supreme law from
which all other laws derive their existence. Section 85 (2) of the 1999 constitution vests the
power to audit the accounts of the federation and of all offices and courts of the federation on
the Auditor General of the Federation. Section 85(3) excludes government statutory,
corporations, commissions, authorities, and agencies from the jurisdiction of the auditor
general. The auditor general of the federation is, however, entitled by section 85 (3) (a) to
provide such bodies with list of suitably qualified auditors as well as provide guidelines for
the remuneration of such auditors.
Section 125 of the constitution makes similar provision for the Auditor General of a state.
The implication of the above provisions is that the Auditor General of the federation is the
External Auditors to the public accounts of the federation. The same is true for the Auditor
General of the state in respect of the public accounts of the state. The State's Auditor General
for Local Government Councils audits the public accounts of Local Government Council as
contained in the financial Memoranda.
280
Apart from the constitution, there are other sources of authority for the audit of public
accounts. These include:
1.
The finance (Control and Management) act of 1958 as amended
2
The Audit Act of 1956 as amended
3.
Financial Regulations
4.
The Audit Guide
6.
Civil Service Reform Guidelines
7.
Extant Government Circulars
8.
Internal Control Guides of Ministries/ Extra Ministerial Departm s etc.
The Public Accounts Committee (PAC) of each state and the N uonal Assembly consider the
Auditor General's report respectively.
3.4
Government auditing standards
The Government in Nigeria has mainly be interested in legislations, regulations and
Executive Orders regarding Auditing. Much of the provisions in these laws are mainly in the
nature of auditing requirements rather than standards in auditing. Government has made
auditing laws for the public sector much of which addressed objectives and procedures of
audit of public sector Accounts and of its Boards and corporations. The Supreme Audit
Institutions have themselves has established some rules and procedures guiding the conduct
of audits to facilitate their work.
In Nigeria, the Federal and State Governments Auditor General have produced the "Audit
Guide" which spells out the general outline or procedures for Audit of the public sector
including the form of audit report. Besides the laws and Audit Guide, there is nothing in the
Public Sector Audit Authority that can reasonably be interpreted as being in the nature of
strict Auditing Standards for the public sectors in Nigeria.
This position has prompted the profession of accountancy to intervene in the framework
project for Public Sector Auditing. The public sector committee (PSC) of the institute of
charted Accountants of Nigeria (ICAN) issued Guideline. No. 31 in January 1992
"Applicability of International Standards on Auditing (ISAs) to the Audit of financial
statements of Government and Non Business Public Sector Entities" The Standard in
question advocated the adoption of International standards on Auditing to the extent that they
do not conflict with local, laws and regulations as well as Ministerial Directives governing an
Audit. Where there is a conflict between the requirements of the International Standard in
281
Auditing and the Local Law the local law should be complied with.
3.5
The Auditor General : Appointment and Removal
Section 86(1) of the 1999 constitution provides for the appointment of the Auditor
1.
General of the Federation by the President on the recommendation
of
the
Federal Civil Service Commission subject to confirmation by the senate.
The Auditor General will vacate office in any of the following ways.
2.
1 He has served in the public service for a maximum of 35 years or
2 He has attained the age of 60 years.
3 By section 87 of the constitution, an address by the president to the senate to
remove him supported by two-third majority of the senate. To be removed in
this way, the Auditor General must have become incapable of performing the
functions of his office due to;
i
Infirmity of mind or body; and
ii
Misconduct
At the state level the Auditor general of a state is appointed by the Governor on the advice
of the state civil service commission subject to confirmation by the state House of Assembly
(s.126). The Governor subject to approval can also remove him by two -thirds of the state
House of Assembly (s. 127).
3.5.1 Functions of the Auditor General for the Federation
The duties, functions and powers of the Auditor General are spelt out in section 85 for the
federal Government and sections 125 for the states. They are as follows for the Auditor
General for the federation.
1. To audit and report on the public accounts of the federation and courts of the
federation.
2. To provide government statutory corporations, commissions authorities, agencies
including all bodies established by the National Assembly with;
3.
i
A list of auditors qualified to be appointed by them as external auditors.
ii
Guideline on the level of fees to be paid to external auditors.
Iii
To comment on the annual accounts and report thereon.
To conduct periodic checks of all agencies and organs of government including but
not limited to statutory corporations, authorities, commissions, agencies including
all persons and bodies established by an Act of the National Assembly.
4.
To submit his reports on the financial statements to each House of the National
282
Assembly within ninety (90) days of receipt of the AccountantGenera's financial
statements.
5.
By section 85 (3) of the 1999 constitution, the Auditor General of the federation has
no authority to act as External Auditor to Government statutory corporations,
commissions, authorities, agencies etc.
The functions of the Auditor General of the states are similar to that of the federation. The
Auditor General derives his power and authority to perform his statutory roles reasonably as
from the constitution of the federal Republic of Nigeria. The office of the Auditor general is
an Extra-ministerial one. It has no minister or commissioner as the political head not a
permanent secretary. Rather the Auditor General is the Head and Accounting Officer of the
office.
Self- Assessment Exercise
1. Discuss the functions of the external auditor to the Government.
3.6
The government internal auditor
There is no express provision for the Internal Auditor in the constitution. However, it is
provided for in other subsidiary legislation. The Financial Regulations (2000) provides in
chapter 20 for the Internal Audit functions.
Section 2001 of the Financial Regulations requires that the Accounting officer of a Ministry
or Extra Ministerial Department shall ensure that an Internal Audit Units it established in the
Ministry.
The functions of an Internal Auditor under the Financial Regulations are:
1.
To carry out a continuous and complete audit of the records and accounts of revenue
and expenditure, plants and store.
2.
To carry out management audits encompassing other areas of activities and functions
of a ministry/ extra-ministerial department.
3.
To carry out a comprehensive audit of all the operations and activities of the ministry/
Extra Ministerial Department.
4.
To ensure that safeguards introduced for the prevention or detection of fraud and loss
of cash are adequate.
5.
To ensure that the system of control for the collection of revenue is adequate and that
all moneys received
have been brought promptly to the account, to the correct head
283
and sub-head.
6.
To ensure that the system for the control of expenditure is adequate and that all
payments made are properly authorized and correct, that they are paid to
the
right
person, from the correct head and sub-head, and made for the purpose for which they
were authorized.
7.
To ensure that a system for control of the issue and consumption of stores is adequate,
that all issues are properly authorized and correct, that issued are made to the right
person, and are used for the purpose for which they are authorized.
8.
To ensure that there are adequate means for the verification by him of all cash, stores
and plant held.
9.
To ensure that all accounting records are accurate.
10.
To carry out 100% pre-payment audit of all checked and personal vouchers.
Self- Assessment Exercise
1. Explain the duties expected of an internal auditor in a public sector organization.
3.6.1 Appointment of an Internal Auditor
There are no special provisions for the appointment of an Internal Auditor. He is a civil
servant who has been appointed and deployed to the ministry in accordance with the civil
service rules. However, section 2002 of the Financial Regulation enjoined the Accounting
Officer of the Ministry to ensure that the Internal Audit Unit of the Ministry is placed
directly under the control of a competent Accounts Officer trained in Treasury duties by the
officer of the Accountant General.
3.7
The Public Accounts Committee (PAC)
The Public Accounts Committee is a Committee of the National Assembly responsible for
the consideration of the Auditor General of the federation. Each state legislature also has a
Public Accounts Committee.
The constitution enjoins the Auditor-General to submit its Annual report to the legislature,
which in turn passes it to the Public Accounts Committee. The Committee examine the
Public Accounts on the basis of the observations raised in the Auditor General’s Report.
The Public Accounts Committee Comprises of all the Political Parties in the House. The
Chairman is customarily appointed from the opposition party. The Auditor General,
Accountant General, Representative of the Ministry of finance,
284
Budget office and the Ministry or Agency concerned are usually in attendance during
deliberation of the Public Accounts Committee.
After the submission of the Auditor Generals report to the Committee, it has absolute
discretion in the planning and direction of its program of work, and the manner of
summoning the ministry or Agency to appear before it. The Accounting officers of the
Ministry I Extra Ministerial Department concerned are summoned to appear to give
explanation on the matters affecting their departments or ministries.
The Auditor General attends the Public sessions of the Committee as a persecutor and in his
capacity as adviser to the committee he is requested to provide justification for each matter
raised in his annual report. The findings of the committee are subsequently submitted to the
whole house after which the House will then direct the minister of finance to take necessary
action on the issues raised by the committee. The report of public proceedings of the
Committee are usually compiled and distributed to all members of the legislatures, the
Accountant Generals office and all Accounting officers in Ministries/ departments and
parastatals.
3.7.1 Functions of The Public Accounts Committee
The following are the functions of the Public Accounts Committee:
1.
To deliberate on the Auditor General's Annual Report Submitted to the legislature.
2.
To summon the appropriate Accounting officer to appear before the Committee to
give explanation on the observations raised by the Auditor General.
3.
To examine any officer on oath (if need be).
4.
To recommend to the executive any action to be taken against an offending officer.
5.
To deliberate on other matters relating to the management of public funds.
6.
To report on areas of weak financial management control observed by it.
7.
To carry out any duty as required by the legislative Assembly.
4.0
SUMMARY
In this unit, you learnt about the meaning and nature of auditing and the different types of
audits like financial audits, performance audit, Interim audit, final year audit, continuous
audit, complete audit, management audit, internal audit, balance sheet audit, system based
285
audit. and vouching/ transaction audit. You have also learnt about the legal framework of
government auditing, government auditing standards, the appointment and removal of the the
Auditor General and his functions.
5.0 CONCLUSION
We have learnt in the previous module that Auditing is one of the financial controls in a
public sector organization. The duty of ensuring public accountability lies with the Auditor
General for the Federation as well as the Public Accounts Committee.
6.0
TUTOR-MARKED ASSIGNMENTS
1. What are the functions of the Public Accounts Committee in Nigeria?
2. The Auditor General of the Federation is not independent of the executive and the
legislature. Discuss.
7.0
REFERENCES/ FURTHER READING
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public
sector accounting and finance, Benin City: MindexPublishing Company Limited
ICAN (2009) Public sector accounting and finance, Lagos: VI Publisher
286
UNIT 7
PARASTATALS AND PUBLIC ENTITIES ACCOUNTING
CONTENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Meaning of public sector Organizations
3.2
Government Business Enterprises
3.3
Parastatals and public companies
3.4
Objectives of corporations, parastatal, public and
3.5
Classes of government parastatals/corporations
3.6
Financial regulation of parastatals
3.7
Relationship with Supervising Ministry
3.8
Functions of the chief executive officers of parastatals
3.9
Public procurement by parastatals: responsibility of the chief executive officer
3.10
Funds management in parastatals
3.11
Audit of government parastatals
3.12
Accounting in the public enterprises
3.13
Hospital accounting
enterprises
3.13.1 Users and users of hospital accounting
3.13.2 Sources of revenue for government hospitals
3.13.3 Financial reporting in government hospitals
3.14
Government university accounting
3.13.1 Legal and Regulatory Environment.
3.14.1 Legal and Regulatory Environment
3.14.2 Sources of income for government universities
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER STUDIES
1.0
INTRODUCTION
In this unit, you will be introduced to accounting and auditing in public sector Organizations.
You will learn the objectives of corporations, parastatal, public and enterprises
287
and
the
classifications of government parastatals/corporations. You will be able to understand the
financial regulation of parastatals and their relationship with their Supervising Ministries.
Furthermore, you will learn from this unit, functions of the chief executive officers of
parastatals, funds management in parastatals, auditing and accounting in government
parastatals, public hospitals and universities.
2.0
OBJECTIVES
After studying this unit, you should be able to:
1.
Delineate public sector Organizations
2
List the objectives of corporations, parastatal, public and
3
Classify government parastatals/corporations
4
Understand the financial regulation of parastatals and their relationship with
enterprises
their Supervising Ministries.
5
List the functions of the chief executive officers of parastatals
6
Appreciate funds management in parastatals
7
Understand auditing and accounting in government parastatals
8
Appreciate finance and accounting in public hospitals and universities.
3.0
MAIN CONTENT
3.1
MEANING OF PUBLIC SECTOR ORGANIZATIONS
The public sector organizations are Organizations set up by the respective tiers of
government to perform specific functions outside the government ministries and extraministerial departments. Omolehinwa and Naiyeju (2015) identified two features of public
sector Organizations:
i.
They do no operate primarily to make profit.
ii.
They do not distribute their income or assets to the benefit of their members or officers
of the organizations.
According to Omolehinwa and Naiyeju, even when such Organizations are dissolved, the
proceeds realised is not given to any individual, but rather the proceeds goes back to the
government. There are very many types of public sector organizations. Omolehinwa and
Naiyeju classified them into two: Type A and Type B. According to them, Type A consists of
288
those the public sector organizations whose financial resources are obtained principally from
the sale of goods and services. On the other hand, Type B are those financed from sources
other than sale of goods and services. Such organizations are financed primarily through
government revenue. Examples of Type B public sector organizations in Nigeria are the
Nigerian Armed Forces, the Nigerian Police Force, public universities, public health
institutions, parastatals or corporations among others. These public sector organizations are
covered by public sector accounting.
3.2
GOVERNMENT BUSINESS ENTERPRISES
Government business enterprises are public sector Organizations whose operations are
commercial in nature. During the privatisation and commercialisation exercise in Nigeria,
some statutory authorities and Organizations of governments were re-constituted during as
profit-making Organizations. They became known as known as government business
enterprises (GBEs). They are provided with considerable management autonomy in which
their Chief executive officer and board of directors could set strategic directions and make
resource management choices. Nevertheless, they remained wholly-owned by government,
and the relevant government minister, in effect, retained the power of their sole shareholder.
While acting as fully competitive profit-making enterprises, they are also made strongly
accountable to the government minister, the parliament and the public. GBEs are, thus,
controlled under a structure that places high expectations on their ability to succeed in a
competitive market by returning regular dividends from profits to government, and at the
same time meeting high demands on their accountability to the minister, parliament and the
public.
Government Business Enterprises (GBEs) include trading enterprises such as utilities and
financial enterprises such as financial institutions. For accounting purposes, GBEs are treated
like organizations in the private sector since they generally operate to make profit.
The International Public Sector Accounting Standard (IPSAS) 1 specified the characteristics
for delineating a GBE:
i.
The entity must have the power to contract in its own name;
ii.
It must the financial and operational authority to carry on a business;
iii.
It sells goods and services, in the normal course of its business, to other entities at a
profit or full cost recovery;
iv.
It does not rely on continuing government funding to be a going concern (other than
purchases of outputs at arm's length); and
289
It is controlled by a public sector entity.
v.
In this chapter, we shall dwell on parastatals or public corporations and Government Business
Enterprises (GBEs).
3.3
PARASTATALS AND PUBLIC COMPANIES
One of the major hallmarks of a public parastatal or corporation is that each corporation has
its own enabling statute. Such statutes usually contain the following among others:
1.
The name of the Corporation
2
The functions of the corporation
3
The aims and objectives of the corporation
4
The composition and structure of the Governing Board
5.
The mode of appointment of the Board and management of the corporation
6.
The Supervising Ministry.
6.
The principal place of Business of the corporation and the Head Office
7.
The place where the head office and branches of the parastatal
8
The structure of the management of the corporation.
9
The operational procedure of the corporation.
10
The source of fund available to the corporation
11
The types of accounts they are expected to keep.
12
are expected to keep.
According to ICAN (2014), Parastatals, Boards or Corporations are quite different from the
Ministries. Ministries and Extra-Ministerial Departments have the same accounting system,
unlike the Boards and Corporations. Government regulations which apply to the Ministries
may not be applicable to Government Agencies. According to ICAN (2014), the term
‘Parastatal’ also refers to a Government Company, Board, Corporation or a Tertiary
Institution such as the Lagos State Polytechnic, University of Benin, Benin City or Ahmadu
Bello University, Zaria.
290
3.4
OBJECTIVES
OF
CORPORATIONS,
PARASTATAL,
PUBLIC
AND
ENTERPRISES
Adams (2013) identified the following the main objectives of setting up Parastatals:
(a) To bring the means of production under public ownership.
(b) To avoid high prices of goods normally charged by the private sector.
(c) To avoid duplication of facilities.
(d) To ensure close Government control over certain ‘key’ sectors of the economy.
(e) To ensure the survival of the Industries.
(f) To avoid imitation of goods.
(g) To enhance the standard of living of the people.
3.5
CLASSES OF GOVERNMENT PARASTATALS/CORPORATIONS
There are different ways by which parastatals can be classified. However, we shall adopt the
classification of ICAN (2014). According to ICAN(2014), parastatals may take the following
forms:
1.
Public Utilities: These are parastatals providing essential services to the citizens
either at ‘nil’ cost or at subsidized rates. This is to bring about proper balance between
social and economic objectives. However, it is no longer so in Nigeria, as most
utilities have been commercialised and citizens pay the full cost of the services.
2.
Regulatory Agencies: These are Government Agencies or partially autonomous
establishments executing general policies of the Government within specified areas.
Examples are National Communication Commission (NCC), Nigeria Copyright
Commission, Financial Reporting Council.
3.
Commercial Enterprises: Commercial enterprises are established by government to
stimulate competition within a given sector and to make profit from their operations.
3.6
FINANCIAL REGULATION OF PARASTATALS
Most parastatals are established by individual statutes or by-laws which contain their
operating guidelines. However, there are financial regulations that are common to all
parastatals. The financial guidelines for the operation of public parastatals in Nigeria are
contained in chapter 32 of the Financial Regulations No. 72 Vol.96, 2009 edition.
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3.7
RELATIONSHIP WITH SUPERVISING MINISTRY
According to FR3201, a ministry supervising a parastatal perform the following functions
1.
Draw up a clear strategic control framework for their operations;
2.
Ensure that each parastatal has sufficient and appropriate management and financial
controls to safeguard public funds.
3.
Ensure that, where a parastatal is incorporated as a company, Consolidated financial
accounts are prepared in accordance with generally accepted accounting practice;
4.
Ensure that each parastatal has made suitable arrangements for internal audit
functions and controls; and
5.
Ensure that the Tenders Board as stipulated by the Public Procurement Act 2007
exists for award of all contracts within the thresholds approved by Bureau of Public
Procurement from time to time.
3.8
FUNCTIONS OF THE CHIEF EXECUTIVE OFFICERS OF PARASTATALS
The Chief Executive Officer of a parastatalsis the Accounting Officer of the Organization.
He has responsibilities for the human, material and financial resources in the management of
the organization. His duties are as contained in FR 112 and 113. Thus the functions of the
Chief Executive Officer of a parastatal include:
1.
Ensuring that proper budgetary and accounting systems are established and
maintained to enhance internal control, accountability and transparency;
2
Ensuring that the essential management control tools are put in place to minimise
waste and fraud;
3.
Rendering monthly and other financial accounting returns and transcripts to the
Accountant -General of the Federation as required by the Financial Regulations;
4.
Ensuring the safety and proper maintenance of all government assets under his care;
5
Ensuring personal appearance before the Public Accounts Committee to answer audit
queries to rninistry/extra-ministerial department or agency;
292
6
Ensuring accurate collection and accounting for all publicmoneys received and
expended;
7
Ensuring prudence in the expenditure of public funds;
8
Ensuring proper assessments, fees, rates and charges are made where necessary;
9
Ensuring internal guides, rules, regulations, procedures are adequately .provided for
the security and effective check on the assessment, collection and accounting for
revenue;
10
Ensuring that any losses of revenue are promptly reported and investigated;
11.
Ensuring that all revenue collected are compared with the budgeted estimates with a
view to highlighting the variances, positive or otherwise and the reasons for them; and
12
Ensuring that any revenue collected are not spent, but remitted to the appropriate
authorities promptly.
Self-Assessment Exercise
1.
List the functions of the chief executive officers of parastatals
3.9
PUBLIC PROCUREMENT BY PARARASTALS: RESPONSIBILITY OF THE
CHIEF EXECUTIVE OFFICER
The CEO of a parastatal charged with the following responsibilities on public procurement in
his parastatal. He is to:
1.
Preside over the activities of their Tenders Boards for the proper planning and
evaluation of tenders and execution of procurements;
2.
Ensure that adequate appropriation is available for Procurements in their annual
budget;
3
Ensure the establishment of a procurement planning committee over whose activities
they shall preside;
4
Constitute a procurement evaluation committee for the efficient evaluation of tenders;
293
5
Constitute a Procurement Committee;
6
Render annual returns of procurement records to the Bureau of Public Procurement;
7
Liaise with the Bureau of Public Procurements to ensure the implementation of its
regulations; and
8.
Ensure compliance with the provisions of the Public Procurement Act by their
organizations, failing which they shall be personally liable for any breach. or
contravention thereof, whether or not such breach or contravention was caused by
the min person, their subordinates or any person to whom they may have delegated
their responsibilities.
3.10
FUNDS MANAGEMENT IN PARASTSTALS
The Financial Regulation provides general guidelines for the management of funds and bank
accounts of parastatals. These provisions are contained in FR3203 to FR3209. This is in
addition to the provisions in the enabling instruments of the respective parastatals. Highlights
of the provisions are:
1
A parastatal cannot open an official bank account unless authorized by the
Accountant-General.
2.
Each approved account shall be maintained under an official designation of the
Parastatal.
3.
The Chief Executive Officer shall provide banks with certified specimen signatures of
officers authorized to sign cheques drawn on official bank accounts and shall advise
banks on any subsequent changes.
4.
No loan or any form of advance shall be obtained from the bank Without prior
approval from Debt Management Office.
5.
No excess funds shall be placed on deposit accountwithout prior approval of the
Accountant-General.
6
All interest earned from moneys placed on deposit account on the approval of the
Accountant-General shall be paid into Consolidated Revenue Fund of the federal
government. and shall be classified to budget Code 6700 and subhead 41 00. (FR822).
294
7.
Except the enabling Act relating to a particular parastatal provides otherwise, the
provisions of the Financial Regulations shall apply.
8.
Where any provision of the
Financial Regulations conflicts with the Act relating to
any particular Parastatal, the immediate advice of the Accountant –General should
besought.
9.
The Chief Executive Officer of a parastatal is required to submit a Statement of
Account on monthly basis to the supervising ministry, showing the receipts of funds
from government for personnel, overheads and capital. The Statement also show the
actual expenditure classified into personnel, overheads and capital.
10.
The Statement of Accounts for each financial year is required to be submitted to the
External Auditor within two months after the end of the financial year.
3.11
AUDIT OF GOVERNMENT PARASTATALS
By the provisions of the Financial Regulations, the Board of each parastatal is required to
appoint an External Auditor who shall audit and report on the affairs of the organization to
the Board. The External Auditor is required to submit the Audited Accounts and Management
Report to the Board of the parastatal within the stipulated time indicated in the signed
contract agreement.
The Chief Executive Officer is required to submit both the Audited Accounts and
Management Report to the Auditor- General and the Accountant General not later than 31st
May of the following year of Account.
The foregoing implies that the Auditor –General is not empowered to audit parastatals.
However, the Auditor –General has the duty to:
1
Provide a list of External Auditors qualified to be appointed by parastatals ;
2.
Provide guidelines on the level of fees to be paid to External Auditors.
3.
Incorporate the comments by the external auditor on the Annual Accounts and
Management Report of the Parastatal to the Public Accounts Committee of the
National Assembly.
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3.12
ACCOUNTING IN THE PUBLIC ENTERPRISES
As explained previously, there are wide varieties of government parastatals. Each parastatal
may adopt the kind accounting policy appropriate to its area of operation. Most parastatals
adopt the principle of accrual accounting while a few adopt the cash basis. Some parastatals
prepare the income and expenditure account while others prepare the profit or loss account.
With the introduction of IPSAS, Government parastatals are now expected to comply with
the provision of IPSAS on Government Business Entities (GBE).
Parastatals that are profit making are required to prepare the following financial statements:
1.
Statement of financial position;
2.
Statement of financial performance;
3.
Statement of changes in net assets/equity;
4
Cash flow statement
5.
Accounting policies and
6.
Notes to the financial statements and other disclosures
Parastatals that are not profit oriented are required to prepare the following statements:
1.
Statement of Financial Position;
2.
Statement of Financial Performance (Income and Expenditure Accounts).
3.
Statement of Changes in Net Assets/Equity;;
4.
Cash flow statement.
5.
Accounting policies
6.
Notes to the Financial Statements and other disclosures
We shall illustrate accounting in parastatals with Hospital and the education sector.
3.13
HOSPITAL ACCOUNTING
3.13.1 USERS AND USERS OF HOSPITAL ACCOUNTING
1.
Hospital managers: The use accounting information for tasks such as
i.
setting realistic and competitive prices
ii
negotiating contracts with purchasers of care
iii.
keeping clinical volume and capacity utilization at efficient levels
iv.
modeling the cost and revenue impact of structural change
v.
demonstrating cost and productivity performance to customers, auditors,
financing agencies, and regulators;
296
2.
Hospital department heads: They need to assess financial performance against
budget targets, monitor cost structures, and track the impact of different care and
management strategies on the department’s efficiency and financial performance;
3.
Purchasers of care: They need information to compare the performance of different
hospitals and make decisions about national funding and selective contracting;
4.
Regulators or auditors who have responsibility for evaluating hospital performance
and need to assess hospitals according to internal and external norms;
5.
Health financing or operations analysts who have responsibility for advising on
policies of resource allocation, care purchasing or hospital management.
3.13.2 SOURCES OF REVENUE FOR GOVERNMENT HOSPITALS
Some of the sources of revenue for government hospitals are:
1.
Charges: Government hospitals renders services to the public for which they charge
fees. The fees may be at full cost, full cost plus profit or at subsidised rate. The fees
and charge by Government hospitals include fees from patient care, x-ray, laboratory
fees, sale of drugs, etc
2.
Capital Grant or Subvention: This is in the nature of contributions from
government or other donor bodies meant for the execution of capital projects.
3.
Recurrent receipt or subvention: This is the amount contributed by the Government
for meeting recurrent expenditure like personnel costs, overhead costs, purchase of
drugs and other hospital consumables etc.
4.
Others: These include income from investments, sale of assets, sundry donations,
income from rent of property, etc.
3.13.3 FINANCIAL REPORTING IN GOVERNMENT HOSPITALS
According to ICAN (2014), an autonomous Government hospital is required to prepare
financial the following financial statements:
1.
Statement of Financial Performance
2.
Statement of Financial Position
3.
Cash Flow Statement
4.
Notes to the Accounts
5.
Memorandum Statement of Account of Capital Fund
6.
Memorandum Statement of Account of Recurrent Funds.
297
3.14
GOVERNMENT UNIVERSITY ACCOUNTING
The university Bursary is the unit if charge of accounting and financial functions in the
Nigerian University system. A veritable example of university accounting in Nigeria is the
Bursary Department of the University of Lagos. The University has a well-articulated Manual
of operations in the bursary. Its purpose is to ascertain that we are able to secure accuracy,
completeness and integrity of our objectives of ensuring that:
1.
Assets are efficiently acquired and safeguarded
2.
Funds are expended in a manner that is efficient, economical and effective to
achieve the purpose for which they were provided.
3.
Finances are managed with responsible stewardship.
4.
Financial statements are in conformity with Generally Accepted Accounting
Principles (GAAP) and International Public Sector Accounting Standards (lPSAS)
5.
The manual is also expected to serve as a manual of training for new entrants in
the
Bursary.
The implication of the above is that the university operates in accordance with the provisions
of IPSAS.
3.14.1 Legal and Regulatory Environment.
The legal and regulatory framework of Bursary activities IN Nigeria universities include: the
following:
1.
The Constitution of the Federal Government of Nigeria 1999 as Amended
2.
Finance Act
3.
Audit Act
4.
Public Procurement Act 2007
5.
Fiscal Responsibility Act 2007
6.
Financial Regulations,2009
7.
Treasury Circulars
8.
Pension Reforms Act 2014
9.
Various Tax Act
10.
Annual Appropriation Acts
11.
Tertiary Education Trust Fund (TETFUND) Acts
12.
Other directives on financial matters by the Federal Government.
298
3.14.2 SOURCES OF INCOME FOR GOVERNMENT UNIVERSITIES
Government universities derive their income from the following sources:
1.
Capital grants from the NUC.
2.
Recurrent grant from the NUC
3.
Grants from the Education Trust fund
4.
Grants from foreign donors
5.
Grants from local donors
6.
School fees from students
7.
Income from staff schools
8.
Income from Investments
9.
Income from consultancy services
Self-Assessment Exercise
1.
Discuss the legal and regulatory environment of government universities in Nigeria
2.
What are the sources of income for government universities?
ILLUSTRATION 1
The Federal University of Science and Technology, Fugari, launched a capital fund campaign
for the construction of lecture theatres, auditorium and purchase of equipment on 3
January, 2008. By 31 July 2008, the following transactions had taken place;
Donations:
^’000
Federal, State and Local Governments
70,000
Companies
10,000
University Staff and Individuals
15,000
Launching Expenses:
Abuja, Lagos and Port Harcourt Centres
600
Advertisement and Publicity
200
Between 1 August and 31 December, 2008, before the official opening of the theatres, the
following events took place:
^’000
Construction of 2000-capacity theatre
10,000
Construction of 700-capacity theatre
6,000
Construction of 1000-capacity Auditorium
4,000
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Purchase of Equipment
25,000
The Vice-Chancellor has called for briefing on 31 December, 2008.
You are required to prepare:
a) Receipts and Payments Account.
b) Income and Expenditure Account for the period ended 31 December 2008.
c) The State of Affairs as at that date
(Adapted from ICAN PE11 November, 2009)
SOLUTION TO ILLUSTRATION 1
UNIVEERSITY OF SCIENCE AND TECHNOLOGY, FUGARI
RECEIPTS AND PAYMENTS ACCOUNT FOR THE PERIOD ENDED 31
DECEMBER, 2008
i.
RECEIPTS:
^’000
^’000
Donations:
Federal State and Local Govts.
70,000
Companies
10,000
University staff and Individuals
15,000 95,000
Less Payments:
Launching
600
Advert and Publicity
200
Construction Works:
2000 - Capacity Theatre
10,000
700 - Capacity Theatre
6,000
1000 - Capacity Auditorium
4,000
Equipment
25,000 45,800
Balance c/f
49,200
300
FEDERAL UNIVERSITY OF SCIENCE AND TECHNOLOGY FUGARI
INCOME
AND
EXPENDITURE
ACCOUNT
FOR
THE
YEAR
ENDED
31DECEMBER, 2008
ii.
INCOME:
^’000
^’000
Donations:
Federal State and Local Govts.
70,000
Companies
10,000
University staff and Individuals
15,000
95,000
Less Expenditure:
Launching
600
Advert and Publicity
200
Campaign fund surplus
800
94,200
FEDERAL UNIVERSITY OF SCIENCE AND TECHNOLOGY FUGARI
STATEMENT OF AFFAIRS AS AT 31DECEMBER, 2008
iii)
Fixed Assets:
^000
2000 - Capacity theatre
10,000
700 - Capacity theatre
6,000
1000 - Capacity Auditorium
4,000
Equipment
25,000
^‟000
45,000
Current Assets:
Bank
49,200
Accumulated Fund
94,200
4.0
SUMMARY
This unit discussed accounting and auditing in parastatals and public enterprises. Public
sector organizations are Organizations set up by the respective tiers of government to perform
specific functions outside the government ministries and extra-ministerial departments.
Government business enterprises are public sector Organizations whose operations are
commercial in nature. They are provided with considerable management autonomy in which
their Chief executive officer and board of directors could set strategic directions and make
301
resource management choices. Nevertheless, they remained wholly-owned by government,
and the relevant government minister, in effect, retained the power of their sole shareholder.
Parastatals may take the following forms: (i) Public Utilities: These are parastatals providing
essential services to the citizens either at ‘nil’ cost or at subsidized rates. This is to bring
about proper balance between social and economic objectives. However, it is no longer so in
Nigeria, as most utilities have been commercialised and citizens pay the full cost of the
services; (ii) Regulatory Agencies: These are Government Agencies or partially autonomous
establishments executing general policies of the Government within specified areas; and (iii)
Commercial Enterprises: Commercial enterprises are established by government to stimulate
competition within a given sector and to make profit from their operations.
Most parastatals are established by individual statutes or by-laws which contain their
operating guidelines. However, there are financial regulations that are common to all
parastatals. The financial guidelines for the operation of public parastatals in Nigeria are
contained in chapter 32 of the Financial Regulations No. 72 Vol.96, 2009 edition.
5.0 CONCLUSION
In this unit, you learnt that there are wide varieties of government parastatals. Each parastatal
may adopt the kind accounting policy appropriate to its area of operation. Most parastatals
adopt the principle of accrual accounting while a few adopt the cash basis. Some parastatals
prepare the income and expenditure account while others prepare the profit or loss account.
With the introduction of IPSAS, Government parastatals are now expected to comply with
the provision of IPSAS on Government Business Entities (GBE).
6.0
TUTOR MARKED ASSIGNMENT
1
What are the distinguishing features of Government Business Enterprises?
2
List the common objectives of corporations, parastatal, public and enterprises
3
Discuss the general financial regulations of government parastatals, highlighting their
relationship with Supervising Ministries.
302
7.0
REFERENCES/FURTHER READING
Adams, R.A. (2014) Public sector accounting and finance made simple, revised edition
3, Lagos: Corporate Publishers Venture.
Emeni, F.K., Ogiedu,K.O., Mgbame, C.O., & Erhagbhe, E. (2008) Public sector accounting
and finance, Benin City: Mindex Publishing Company Limited
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
303
MODULE FOUR
UNIT 1
FINANCIAL REPORTING UNDER INTERNATIONAL PUBLIC
SECTOR ACCOUNTING STANDARDS
UNIT 2
INTERNATIONAL PUBLIC SECTOR ACCOUNTING
STANDARDS(IPSAS) 1-5
UNIT 3
INTERNATIONAL PUBLIC SECTOR ACCOUNTING
STANDARDS (IPSAS) 6 -11
UNIT 4
INTERNATIONAL PUBLIC SECTOR ACCOUNTING STANDARDS
(IPSAS) 11-17
UNIT 1
FINANCIAL REPORTING UNDER INTERNATIONAL PUBLIC
SECTOR ACCOUNTING STANDARDS
MAIN CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Introduction to financial reporting under IPSAS in Nigeria
3.2
Advantages of IPSAS
3.2.1
Political benefits
3.2.2
Economic benefits
3.3
Challenges of IPSAS implementation in Nigeria
3.4
Specific challenges
3.5
Presentation of general purpose financial statements (GPFS)
3.6
Consolidated statement of financial performance
3.7
Consolidated statement of financial position
3.8
Consolidated statement of cash flow
304
3.9
Statement of changes in net assets/equity
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0
INTRODUCTION
In this unit, you will learn the preparation of financial statements in Nigeria under IPSAS.
You will learn the types of general purpose financial statements to be prepared in Nigeria
under IPSAS. You will also learn the political and economic benefits of IPSAS and the
challenges of IPSAS implementation in Nigeria. Furthermore, You will learn the specific
challenges of the various IPSAS and the formats of the various financial statements prepared
under IPSAS.
2.0
OBJECTIVES
After reading this unit, the student should be able to:
1.
Know the types of general purpose financial statements to be prepared in Nigeria
under IPSAS.
2.
Appreciate the political and economic benefits of IPSAS
3.
Appreciate the challenges if IPSAS implementation in Nigeria.
4.
Appreciate the specific challenges of the various IPSAS
5.
Know the formats of the various financial statements prepared under IPSAS
3.0
MAIN CONTENT
3.1
Introduction to financial reporting under IPSAS in Nigeria
305
IPSASs are accounting standards for application by national governments, regional (e.g.
state, provincial, territorial) governments, local (e.g. city, town) governments and related
governmental entities (e.g. agencies, boards and commissions). IPSASs are widely used by
intergovernmental organizations. However, it does not apply to Government Business
Enterprises (GBEs).
The standards aim at improving the quality of general purpose financial reporting by public
sector entities, leading to better informed assessments of the resource allocation decisions
made by governments, thereby increasing transparency and accountability.
The overall responsibility for IPSAS implementation in Nigeria is vested in the Federation
Account Allocation Committee (FAAC)
Sub-Committee on IPSAS Implementation. In
addition to the traditional roles, the finance functions of the Public Sector Entities (PSEs)
have the primary responsibility of applying the principles of IPSAS to the financial reporting
process of the entities.
IPSAS adoption is in line with the concept of ‘New Public Management’ (NPM). The
application of the NPM doctrine changed irrevocably the way in which the public and civil
servants look at themselves. It is generally agreed that the very essence of NPM has been to
replace the traditional hierarchical bureaucratic model of public service with an
administration that is performance-oriented and that operates in quasi-market conditions,
fostering competition amongst suppliers of government-sponsored goods and services (Hood,
1991). The basic idea was to introduce incentives for innovation and efficiency on the part of
public servants, especially those occupying senior positions. An important theme within
public management is that the public sector should seek to behave in a more business-like
manner (i.e. more like the private sector). The idea behind is that the efficiency of public
service provision is enhanced where a public sector agency conducts its affairs in accordance
with business principles. Therefore, public service agencies should adopt reward structures
for their employees, much like those in the private sector, encompassing such mechanisms as
performance-related pay and more flexible working practices. (Promberger & Rauskala,
2003). In the finance and accounting function, the NPM
implies the use of accrual
accounting in a way much similar to the private sector.
With the return of Nigeria to democratic government in 1999, the country had initiated
various reforms aimed at strengthening transparency and accountability. This led to the
various Public Financial Management initiatives being implemented by Government since
306
then. In 2010, the decision to migrate to the International Public Sector Accounting Standards
(IPSAS). This decision was taken by the Federal Executive Council at its meeting held on the
28lh July, 2010. In this connection, the Federation Account Allocation Committee (FAAC) set
up a Technical Subcommittee to draw up the Roadmap for IPSAS Implementation.
In line with the recommendation of the Technical Sub-Committee, FAAC has set Is January,
2016 as the date for the commencement of IPSAS Accrual Accounting for all Public Sector
Entities (PSE) in Nigeria.
3.2
ADVANTAGES OF IPSAS
The following are the benefits of the application of IPSAS in Nigeria.
3.2.1 Political benefits
1.
Accountability: increased disclosure in accounting reports;
2.
Transparency: Full disclosure of government financial transactions;
3.
Decision making: Provide the executive and legislature with bases for their decisions
on the allocation of resources;
4.
Basis for efficient and effective public sector management;
5.
Improved Credibility/Integrity: Standards independently set and known world-wide;
6.
International Best Practice & Comparability: IPSAS seeks to ensure that financial
statements are comparable across jurisdictions;
6.
Enables Stakeholders to assess how well their resources have been utilized.
7.
Enhanced Implementation of the Freedom of Information (FOI) Act 2011: The
accountability and transparency requirements of IPSAS are consistent with, and
supports the provisions of the Nigerian FOI Act 2011 which seeks to promote access
to government information
307
3.2.2 Economic benefits
1.
Aggregate Reporting: Adoption of IPSAS will ensure a holistic reporting of
government financial transactions and positions;
2.
Improved Service Delivery: Greater accountability and transparency, will improve
value for Money (VFM) spending;
3.
Enhance Public-Private Partnership arrangements: collaborative efforts between the
public and private sectors are deepened due to use of similar standards;
4.
Comparability: IPSAS and IFRS are similar and this common basis makes for
convergence in accounting of both sectors on comparable matters
5.
Building confidence in Donor Agencies and Lenders: increases the country’s access
to international aids /loans and other development assistance
6.
Competitiveness in the global market place: Increased Cross-border Investment and
Foreign Direct Investment. increases the propensity to generate more cross border and
foreign direct investments through greater transparency and a lower cost of capital
for potential investors
Self-Assessment Exercise.
1.
What are the political and economic benefits of IPSAS?
3.3
CHALLENGES OF IPSAS IMPLEMENTATION IN NIGERIA
Bello (2013) identified the following challenges to the implementation of IPSAS in Nigeria
1)
Institutional Challenges: IPSAS is a tedious enterprise in many aspects. It ignores
national diversity in political, cultural, traditional, legal and economic sectors.
Furthermore, it elevates professional control over governmental authority. It is an
attempt to make the European model of government accounting as world standard.
2)
Organizational Challenges: IPSAS adoption is a complex and comprehensive
change management process. While it offers numerous benefits over the medium and
long term, it also entails short-term costs and challenges. Being an intense change
process with consequential effects, it faces serious challenges from various
stakeholders.
308
3)
Political Challenges: The full potential of using accrual-based information can be
realized only if political office holders are convinced of the value of accrual-based
data and are able to act on it so as to improve reporting processes. However those that
are benefitting from old system will sabotage the successful implementation of
IPSAS. Unless there is political commitment and honesty from the elected officials
who virtually power lies in their hands, the exercise will end in paper.
4)
Principle Challenges: IPSAS still lack of guidance from a sound conceptual
framework. A conceptual framework is expected to specify the objectives, scope,
recognition criteria, definitions and qualitative characteristics of financial information,
providing the basement and justification for standards. Up to this time, IPSAS are
characterized by numerous detailed rules and only few general principles regarding
financial statements.
5)
Professional Challenges: presentation of financial statements according to IPSAS
claims professional expertise as accountants and auditors, it requires the availability
of professional accounting skills framework. Although the number of professional
accountants in Nigeria has increased tremendously in two decades with coming of
ANAN, IPSAS is a new concept, which is not understood by many.
6)
Conceptual Challenges: IPSAS lacks basic and clear conceptual framework rather an
assumed IFRS framework is to be used. These pause a lot of impediments in
comprehending and certain treatment of items. Furthermore the conceptual issues
aggravate the followings:
3.4
a)
Neglect of system capability and internal accountability
b)
Setting standards before agreement on a conceptual framework
c)
Starting IPSAS with modified international business accounting standards
d)
Ambiguous stance on the basis of accounting
e)
High aggregation level in financial reporting
SPECIFIC CHALLENGES
Bello (2013) also identified the following challenges in the respective standards under IPSAS
309
IPSAS
CHALLENGES
IPSAS 1. Presentation of Financial Currently PSA are on cash basis it would take long
Statements
time to train qualified personnel to handle accrual
.
accounting in PS
IPSAS 2. Cash Flow Statements
The operation of PS is not well defined likewise its
financing structure. It’s going to be difficult to
provide structure in place in near time to come
IPSAS 3 Net Surplus or Deficit for the PS in Nigeria operates inefficiently and reporters will
Period, Fundamental Errors and face a lot of obstacles in identifying what constitute
Changes in
errors. Errors
Accounting Policies
IPSAS 4 The Effects of Changes in The exchange rate regime in Nigeria is highly
Foreign Exchange Rates
volatile and adopting this standard may creates a lot
of flexibility in governance of govt. funds.
IPSAS 5 Borrowing Costs
Vast resources accruing to PS in Nigeria come from
statutory allocation; any standard that will aloe
borrowings to be expensed may jeopardize the
reports.
IPSAS 6 Consolidated Financial It’s going to be difficult looking at existing political
Statements
and
Accounting
for structure for FGN to consolidate SGA and LGA’s.
Controlled Entities
IPSAS 7 Accounting for Investments in Consolidation is a difficult task even in private
Associates
settings.
IPSAS 8 Financial Reporting of Interests Accounting for joint venture using equity method
in Joint Ventures
will result in given undue advantage to government.
IPSAS 9 Revenue from Exchange Fair value consideration may results in directing
Transactions
financial reports to preparers’ interest (income
smoothing). In governments this allows for the
tendency of corruption.
IPSAS 10 Financial Reporting in Financial restatement may be cumbersome and
Hyperinflationary Economies
difficult. A lot of assumption and value judgment
may cause subjectivity.
IPSAS 11 Construction Contracts
Due to inflationary forces full application may be
difficult. Likewise, abandoned projects and lack of
enforcement rules could be a factor to successful
application.
IPSAS 12 Inventories
Currently government inventories are not fully
accounted for, data on them is also scarce. It will take
long time before such can be achieved.
IPSAS 13 Leases
Improper documentations of agreements may hamper
application of this provision
IPSAS 14 Events After the Reporting Budget delays and variations are major challenges.
Date
IPSAS 15 Financial Instruments: Stocks in Nigeria are highly volatile and some are
Disclosure and Presentation
stagnant. Volatility factor could be a potential
problem in fair value treatment of financial
310
instruments.
IPSAS 16 Investment Property
Lack of adequate statistical data of government
owned properties and estate is a big challenge.
IPSAS 17 Property, Plant and Equipment Inadequate statistical data on government assets and
difficulty in classification.
IPSAS 18 Segment Reporting
This requirement is full of ambiguities, which is
difficult even in private sector.
Its difficult to ascertain and value contingent
IPSAS 19 Provisions, Contingent liabilities talk less of assets.
Liabilities and Contingent Assets
IPSAS 20 Related Party Disclosures
Corruptions and graft related offenses are major
impediments to the realization of this standard.
IPSAS21 Impairment of Non-Cash- This standard is redundant as par as public entities
Generating Assets
are concerned.
IPSAS 22
A lot of statistical data are needed to realize the
Disclosure of Financial Information
provisional requirements of the standard.
About the General Government Sector
IPSAS 23.
Less challenge in application. Government grants aid
Revenue from Non-Exchange
form a substantial part of revenue at state and LGA’s
Transactions (Taxes and Transfers)
so its not a new thing.
IPSAS 24 Presentation of Budget
Large history of variation may hamper honest
Information in Financial Statements
presentation. Also poor budget performance history.
IPSAS 25
The standard requires a lot of actuarial information,
Employee Benefit
which is currently not available.
IPSAS 26 Impairment of CashGenerating Assets
IPSAS27
Agriculture
IPSAS 28
Financial Instruments: Presentation
IPSAS 29
Financial Instruments: Recognition and
Measurement
IPSAS 30 Financial Instruments:
Disclosures
IPSAS 31
Intangible Assets
IPSAS 32
Service Concession Arrangement:
Grantor
Cash Basis IPSAS
The provision of impairments may lead to room for
smoothing.
Lack of adequate data on government farms asset,
implements and produce. Valuation of plantation
farms could also be a big challenge.
Fair value valuation
Fair value Measurement
What constitute risk in Govt. is not adequately
defined and hard to comprehend
Intangibles are yet to be fully conceptualized in
government.
Conceptual challenges.
Lack of qualified manpower especially at LGA’s
level is identified as a major obstacle to migration to
full cash IPSAS
Self-Assessment Exercise.
1.
Identify the key challenges of IPSAS implementation in Nigeria
311
3.5
Presentation of general purpose financial statements (GPFS)
GPFS are financial reports intended to meet the information needs of users who are unable to
require the preparation of financial reports tailored to meet their specific information needs.
The objectives of GPFS are to provide information about the financial position, financial
performance, and cash flows of an entity that is useful to a wide range of users in making and
evaluating decisions about the allocation of resources.
The Federal Republic of Nigeria General Purpose Financial Statements (GPFS) FOR IPSAS
ACCRUALS identified three categories of statements to be prepared by the relevant publc
sector entities. They are: (1) The main financial statements, (2) Performance Reports, and (3)
Statistical Reports.
A
MAIN FINANCIAL STATEMENTS
i
Format of Consolidated Statement of Financial Performance (Income &
Expenditure)
B
C
ii
Format of Consolidated Statement of Financial Position (Balance Sheet)
iii
Format of Statement of Consolidated Statement of Cash Flow
iv
Format of Statement of Changes in Net assets/ Equity
V
Notes to the Accounts
vi
Supplementary Notes
PERFORMANCE REPORTS
vii
Format of Revenue Performance Report
viii
Format of Recurrent Expenditure Performance Report
ix
Format of Capital Expenditure Performance Report
X
Format of Periodic Bank Reconciliation Statements
xi
Format of Monthly Cash Advances Report
STATISTICAL REPORTS
312
3.6
xii
Format of Functional Report
xiii
Format of Programme Report
xiv
Format of Geo Location Report
Consolidated statement of financial performance
--------------------------------------------------------------GOVERNMENT OF NIGERIA
CONSOKIDATED STATEMENT OF FINANCIAL PERFORMANCE (INCOME
313
Supplementary
budget 20XX
on
Variance
Final budget
budget
Initial/original
budget 20XX
EXPENDITURE
Salaries & Wages
Allowances & Social Contribution
Social Benefits
Overhead Cost
Grants & Contributions
Subsidies
Depreciation Charges
Final
20XX
X
X
X
X
X
X
X
X
Actual 20XX
X
X
X
X
X
X
X
X
XX
REVENUE
Government Share of FAAC (Statutory
Revenue)
Tax Revenue
Non-Tax Revenue
Investment Income
Interest Earned
AID & Grants
Other Capital Receipts
Debt Forgiveness
Other Revenue
Total Revenue
Notes
Revenue
year
Previous
actual (20XX-1)
AND EXPENDITURE FOR YEAR ENDED 31ST DECEMBER 20XX _
1
X
X
X
X
X
2
3
4
5
6
7
8
9
X
X
X
X
X
X
X
X
XX
X
X
X
X
X
X
X
X
XX
X
X
X
X
X
X
X
X
XX
X
X
X
X
X
X
X
X
XX
X
X
X
X
X
X
X
X
XX
10
11
12
13
14
15
16
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
XX
Impairment Charges
Amortization Charges
Bad Debts Charges
Total Expenditure
X
Surplus/(deficit) from Operating
Activities for the Period
(X)
X
Public Debt Charges
Gain/ Loss on Disposal of Asset
Gain/Loss on Exchange Transaction
Total non-operating revenue (expenses)
XX
X
(X)
XX
3.7
17
18
19
Surplus/deficit) from Ordinary
Activities
Minority Interest Share of surplus/
(deficit)
X
X
X
XX
X
X
X
XX
X
X
X
XX
X
X
X
XX
X
X
X
XX
X
X
X
X
X
20
21
22
(X)
X
X
XX
(X)
X
X
XX
(X)
X
X
XX
(X)
X
X
XX
(X)
X
X
XX
23
(X) (X)
(X)
(X)
(X)
XX XX
XX
XX
XX
Net Surplus/ (Deficit) for the Period
Consolidated statement of financial position
----------------------------------------------GOVERNMENT OF NIGERIA
CONSOLIDATED STATEMENT OF FINANCIAL POSITION (BALANCE SHEET)
AS AT 31ST DECEMBER 20XX.
ASSETS
Current Assets
Cash and cash equivalents
Inventories s
Receivables s
Prepayments
Ref.
Notes
20XX
^’000
3101 -4
3105
3106-7
3108
24
25
26
27
X
X
X
X
A
Non-current assets
Loans Granted
Investments
Fixed Assets - Property, Plant &
Equipment
Investment Property
Intangible Assets
20XX
^’000
20XX-1
^’000
X
X
X
X
X
X
3110
3109
3201
28
29
30
X
X
X
X
X
X
3202
3301
31
32
X
X
X
X
B
Total Assets C = A + B
X
XX
314
20XX-1
^’000
X
XX
LIABILITIES
Current Liabilities
Deposits
Loans & Debts (Short-term)
Unremitted Deductions
Accrued Expenses (Including
Pension & Gratuity)
Current portion of borrowings
4101
4102
4103
4104
33
34
35
36
X
X
X
X
4105
37
X
D
38
39
470t1
4702
40
41
X
X
X
Net Assets: G = C - F
X
X
X
XX
X
XX
XX
XX
X
X
X
X
X
XX
Total Net Assets/Equity:
3.8
X
X
Non-Current Liabilities
Public Funds
4601
Borrowings
4602
E
Total Liabilities: F = D + E
NET ASSETS/EQUITY
Reserves
Accumulated surpluses/(deficits)
X
X
X
X
X
XX
Consolidated statement of cash flow
---------------------------------------------------GOVERNMENT OF NIGERIA
CONSOLIDATED STATEMENT OF CASH FLOW FOR THE YEAR ENDED 31 ST
DECEMBER, 20XX.
Notes
CASH FLOWS FROM
OPERATING ACTIVITIES
Inflows
Statutory Revenue
VAT
Direct Taxes
Licences, Fines, Royalties, Fees
etc.
Earnings & Sales
Rents of Government Properties
20XX
^’000
20XX
^’000
20XX-1
^’000
X
X
X
X
X
X
X
X
X
X
X
X
X
X
315
20XX-1
^’000
Investment Income
Interest & Repayment General
Re-imbursement
Funds from Special Accounts
Domestic Aid & Grants
External Aid & Grants
Gains from exchange transactions
Other Revenue (e.q. Plea Bargain)
Total Inflow from Operating
Activities
X
X
X
X
X
X
X
X
XX
X
X
X
X
X
X
X
X
XX
Outflows
Personnel Emoluments
Overheads (Payment to
Consultants, Suppliers etc)
Contribution to Pension Schemes
Contribution to Other Employee
Schemes
Consolidated Revenue Charges
Interest Payment
Total Outflow from Operating
Activities
Net Cash inflow/(Outflow) From
Operating Activities
X
X
X
X
X
X
X
X
X
X
X
X
XX
X
X
XX
CASH FLOW FROM
INVESTING ACTIVITIES
Purchase/ Construction of Assets
(According to Sectors)
Purchase of Financial Market
Instruments
Investment in Private Companies
Investment in Development of
Natural Resources
Foreign Investments
Proceeds from Foreign
Investments
Proceeds from Sales of Fixed
Assets
Dividends Received
Net cash flow from investing
activities
CASH FLOW FROM
FINANCING ACTIVITIES
Proceeds from Domestic Loans &
Other Borrowings
1
XX/(XX)
(X)
(X)
(X)
(X)
(X)
(X)
(X)
(X)
(X)
X
(X)
X
X
X
X
X
XX/(XX)
X
316
XX/(XX)
XX/(XX)
X
Proceeds from External Loans &
Other Borrowings
Grants and Loans to Other
Governments/Agencies
Contribution/ Subscriptions to
International Agencies/ Bodies
Repayment of Loans
Net Cash Flow from Financing
Activities
X
X
(X)
(X)
(X)
(X)
(X)
(X)
XX/(XX)
XX/(XX)
Net Cash Flow from all Activities
XX/(XX)
XX/(XX)
Cash & Its Equivalent as at
1/1/20X2
Cash & Its Equivalent as at
31/12/20X2
X
X
XX
XX
Notes:
RECONCILIATION:
Surplus/ (Deficit) per Statement of
Performance
Add Back Non-Cash Movement
Items:
Depreciation charges
Amortisation charges
Impairment charges
Debt forgiveness
Net Movement in Current
Assets/Liabilities.
Net Movement in Inventories
Net Movement in Receivables
Net Movement in Payables
Net Cash Flow from Operating
Activities
Cash & its equivalent as at
31/12/xx
Cash balances
Bank balances
Certificate of Deposits
2
X
X
X
X
X
X
XX
X/(X)
X/(X)
X/(X)
X/(X)
X
X
X
XX
317
3.9
Statement of changes in net assets/equity
----------------------------------------------GOVERNMENT OF NIGERIA
STATEMENT OF CHANGES IN NET ASSETS/EQUITY FOR THE YEAR ENDED
Balance at 31 December 20X0
Total
surplus (Deficit)
Accumulated
reserve
Translation
reserve
Revaluation
Notes
31ST DECEMBER, 20XX
^’000
^’000
^’000
^’000
X
(X)
X
X
(X)
(X)
X
X
Changes in Accounting Policy
Restated Balance
X
X
Surplus on Revaluation of Property
X
X
Deficit on Revaluation of Investments *
(X)
(X)
Net Gains and Losses not Recognised in
X
(X)
X
the Statement of Financial Performance
Net surplus for the period
Balance at 31 December 20xx
X
Deficit on Revaluation of Property
(X)
318
(X)
X
X
X
X
(X)
Surplus on revaluation of investments
X
Statement of Financial Performance
(X)
X
(X)
Net deficit for the Period
Balance at 31 December 20X2
4.0
X
(X)
(X)
(X)
(X)
X
X
SUMMARY
This unit discussed the preparation of financial statements in Nigeria under IPSAS. IPSASs
are accounting standards for application by national governments, regional (e.g. state,
provincial, territorial) governments, local (e.g. city, town) governments and related
governmental entities (e.g. agencies, boards and commissions). IPSASs are widely used by
intergovernmental organizations. However, it does not apply to Government Business
Enterprises (GBEs).
The standards aim at improving the quality of general purpose financial reporting by public
sector entities, leading to better informed assessments of the resource allocation decisions
made by governments, thereby increasing transparency and accountability.
The overall responsibility for IPSAS implementation in Nigeria is vested in the Federation
Account Allocation Committee (FAAC)
Sub-Committee on IPSAS Implementation. In
addition to the traditional roles, the finance functions of the Public Sector Entities (PSEs)
have the primary responsibility of applying the principles of IPSAS to the financial reporting
process of the entities.
GPFS are financial reports intended to meet the information needs of users who are unable to
require the preparation of financial reports tailored to meet their specific information needs.
The objectives of GPFS are to provide information about the financial position, financial
performance, and cash flows of an entity that is useful to a wide range of users in making and
evaluating decisions about the allocation of resources.
5.0
CONCLUSION
319
The Federal Republic of Nigeria General Purpose Financial Statements (GPFS) FOR IPSAS
ACCRUALS identified three categories of statements to be prepared by the relevant publc
sector entities. They are: (1) The main financial statements, (2) Performance Reports, and (3)
Statistical Reports. The main financial statements consist of (i) Consolidated Statement of
Financial Performance (Income & Expenditure), (ii) Format of Consolidated Statement of
Financial Position (Balance Sheet), (iii) Statement of Consolidated Statement of Cash Flow,
(iv) Format of Statement of Changes in Net assets/ Equity, (v) Notes to the Accounts, and (vi)
supplementary Notes.
6.0
TUTOR MARKED ASSIGNMENTS
1.
List the general purpose financial statements (GPFS) prepared under IPSAS in
Nigeria.
2.
Identify the challenges of the implementation of IPSAS 26-Impairment of CashGenerating Assets in Nigeria.
3.
7.0
List the challenges of the implementation of IPSAS 27- Agriculture in Nigeria.
REFERENCES/ FURTHER READING
Bello, A. (2013) IPSAS: Issues, Challenges and Implementation, Being a paper presented at
MCPD organised by Institute of Certified Public Accountants of Nigeria (ICPAN).
IPSASB (2016) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume II, New York: IFAC
IPSASB (2014) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume I, New York: IFAC
Ogiedu, K.O. (2016) Lecture notes on Public Sector Accounting and finance, Benin City,
Unpublished
FAAC (2015) Accrual accounting manual for all public sector entities in Nigeria (Federal,
states and local governments), Abuja: FAAC Sub-Committee on IPSAS
Implementation.
320
UNIT 2
INTERNATIONAL PUBLIC SECTOR ACCOUNTING STANDARDS
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
Introduction
3.2
Process for setting international public sector accounting standards
3.3
IPSAS 1—Presentation of financial statements
3.4
3.5
3.3.1
Objective and scopeof the standard
3.3.2
Significant definitions
3.3.3
Purpose of Financial Statements
3.3.4
Components of Financial Statements
3.3.5
Statement of financial position
3.3.6
Statement of financial performance
3.3.7
Cash flow statement
3.3.8
Comparison with IAS 1
IPSAS 2—Cash flow statements
3.4.1
Introduction
3.4.2
Benefits of Cash Flow Information
3.4.3
Presentation of a Cash Flow Statement
3.4.4
Illustrative Examples
3.4.5
Comparison with IAS 7
IPSAS 3—Accounting policies, changes in accounting estimates and
errors
3.6
3.5.1
Accounting policies
3.5.2
Changes in accounting estimates
3.5.3
Comparison with IAS 8
IPSAS 4―The effects of changes in foreign exchange rates
3.6.1
Introduction
3.6.2
Functional currency
3.6.3
Reporting foreign currency transactions in the functional currency
321
3.7
3.6.4
Use of a presentation currency other than the functional currency
3.6.5
Comparison with IAS 21
IPSAS 5—Borrowing costs
3.7.1
Borrowing Costs
3.7.2
Qualifying assets
3.7.3
Borrowing Costs—Benchmark Treatment
3.7.4
Borrowing Costs—Allowed Alternative Treatment
3.7.5
Borrowing Costs Eligible for Capitalization
3.7.6
Commencement, suspension and cessation of capitalization
3.7.7
Disclosure
3.7.8
Comparison with IAS 23
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/FURTHER READING
1.0
INTRODUCTION
In this unit, you will be introduced to International Public Sector Accounting Standards
(IPSAS). The International Public Sector Accounting Standards are promulgated by the
International Federation of Accountants (IFAC) through one of its organs, the International
Public Sector Accounting Standards Board (IPSAB). You will be introduced to the process
for setting IPSAS. There are presently are 38 IPSAS, but in this unit, you will introduced to
only the first five, namely: IPSAS 1, 2,3, 4, and 5.
2.0
OBJECTIVES
After studying this unit, you be able to:
1.
Appreciate the process for setting international public sector accounting standards
2
Appreciate the IPSAS 1—Presentation of financial statements, including the objective
and scope of the standard, purpose of Financial Statements, and the components of
financial statements
3.
Prepare financial statements using PSAS 2—Cash flow statements
4
Apply IPSAS 3—Accounting policies, changes in accounting estimates and
errors in the preparation of financial statements
5
Apply IPSAS 4―The effects of changes in foreign exchange rates in the preparation
of financial statements under IPSAS
322
5.
Calculate borrowing costs in line with the provisions of IPSAS 5
3.0
MAIN CONTENT
3.1
INTRODUCTION TO IPSAS
The International Public Sector Accounting Standards are promulgated by the International
Federation of Accountants (IFAC) through one of its organs, the International Public Sector
Accounting Standards Board (IPSAB). According to IPSASB (2014), the mission of the
International Federation of Accountants (IFAC) consists of the following:
1.
Serving the public interest by contributing to the development, adoption and
implementation of high-quality international standards and guidance;
2.
Contributing
to
organizations
and
the
development
accounting
firms,
of
and
strong
to
professional
high
quality
accountancy
practices
by
professional accountants;
3
Promoting the value of professional accountants worldwide;
4
Speaking out on public interest issues where the accountancy profession’s expertise is
most relevant.
To achieve this mission, the IFAC Board established the IPSASB to function as an
independent standard-setting body under the auspices of IFAC. The IPSASB serves the
public interest by developing and issuing, under its own authority, accounting standards and
other publications for use by public sector entities other than Government Business
Enterprises (GBEs).
In fulfilling its objective, the IPSASB develops and issues the following publications:
1.
IPSASs as the standards to be applied in the preparation of general purpose
financial reports of public sector entities other than GBEs.
2
Recommended Practice Guidelines (RPGs) to provide guidance on good practice that
public sector entities are encouraged to follow.
3.
Studies to provide advice on financial reporting issues in the public sector. They are
based on study of the good practices and most effective methods for dealing
with the issues being addressed.
323
4.
Other papers and research reports to provide information that contributes to the
body of knowledge about public sector financial reporting issues and
The IPSASs are designed to apply to the general purpose financial reports of all public sector
entities other than GBEs. Public sector entities include national governments, regional (e.g.,
state, provincial, territorial) governments, local (e.g., city, town) governments and related
governmental entities (e.g., agencies, boards, commissions and enterprises), unless otherwise
stated. International organizations also apply IPSASs.(IPSASB,2014)
The IPSASs do not apply to GBEs. GBEs apply International Financial Reporting Standards
(IFRSs) which are issued by the International Accounting Standards Board (IASB). IPSASs
include a definition of GBEs.
According to IPSASB (2014), the members of the IPSASB, including the Chair and Deputy
Chair, are appointed by the IFAC Board on the recommendation of the IFAC Nominating
Committee. The appointment as Deputy Chair does not imply that the individual concerned is
the Chair-elect. The IPSASB has 18 members, 15 of whom are nominated by IFAC Member
Bodies and three of whom are appointed as public members. A public member is expected to
reflect, and is seen to reflect, the wider public interest. The three public members may be
members of IFAC Member Bodies.
3.2
PROCESS FOR SETTING INTERNATIONAL PUBLIC SECTOR
ACCOUNTING STANDARDS
According to ICAN (2014), the IPSASB’s due process for projects normally, but not
necessarily takes the following stages:
(a)
The IPSASB carries out a study of national accounting requirements and practice
and exchange of views about the issues with national standard-setters.
(b)
Consideration of pronouncement issued by.
(i)
The International Account Standard Board (IASB)
(ii)
National Standard setters, regulatory authority and other
authoritative bodies.
(c)
(iii)
Professional accounting bodies; and
(iv)
Other Organizations interested in financing reporting in the public.
Formation of Steering Committees (SC). Projects Advisory Panels (PAPS) or
subcommittees to provide input to the IPSASB on a project,
324
(d)
Publication of an exposure draft for public comment usually for at least 4 months.
This provides an opportunity for those affected by the IPSASB’s
pronouncements and are finalised and approved by the IPSAS. The exposure
draft, will include a basis for conclusion;
(e)
Consideration of all comments received within the comment period on discussion
documents and exposure drafts, and to make modifications proposed
Standards
as
considered appropriate in the light of the IPSASB’s
(f)
Publication of an IPSAS which includes a Basis for conclusions that explains the
steps in the IPSASB’s due process and how the IPSASB reached its conclusions.
3.3
IPSAS 1—PRESENTATION OF FINANCIAL STATEMENTS
3.3.1 OBJECTIVE AND SCOPEOF THE STANDARD
According to the provisions of the standard, the objective is to prescribe the manner in which
general purpose financial statements should be presented to ensure comparability both with
the entity’s financial statements of previous periods and with the financial statements of other
entities.
This Standard is applied to all general purpose financial statements prepared and presented
under the accrual basis of accounting in accordance with IPSASs. General purpose financial
statements are those intended to meet the needs of users who are not in a position to demand
reports tailored to meet their particular information needs.
This Standard applies equally to all entities and whether or not they need to prepare
consolidated financial statements or separate financial statements. as defined in IPSAS 6,
Consolidated and Separate Financial Statements. This Standard applies to all public sector
entities other than Government Business Enterprises.
3.3.2 SIGNIFICANT DEFINITIONS
(A) Government Business Enterprise:
This is defined by the standard as an entity that has all the following characteristics:
(a)
It has the power to contract in its own name;
(b)
It has been assigned the financial and operational authority to carry on a business;
(c)
The entity Sells goods and services, in the normal course of its business, to other
entities at a profit or full cost recovery;
(d)
The entity s not reliant on continuing government funding to be a going concern
(other than purchases of outputs at arm’s length); and
325
(e)
It is controlled by a public sector entity.
The standard defines GBEs to include both trading enterprises, such as utilities, and financial
enterprises, such as financial institutions. GBEs are, in substance, no different from entities
conducting similar activities in the private sector. GBEs generally operate to make a profit,
although some may have limited community service obligations under which they are
required to provide some individuals and organizations in the community with goods and
services at either no charge or a significantly reduced charge.
3.3.3 Purpose of Financial Statements
According to paragraph 15 of the standard, Financial statements are a structured
representation of the financial position and financial performance of an entity. The objectives
of general purpose financial statements are to provide information about the financial
position, financial performance, and cash flows of an entity that is useful to a wide range of
users in making and evaluating decisions about the allocation of resources. Specifically, the
objectives of general purpose financial reporting in the public sector should be to provide
information useful for decision making, and to demonstrate the accountability of the entity
for the resources entrusted to it, by:
(a)
Providing information about the sources, allocation, and uses of financial resources;
(b)
Providing information about how the entity financed its activitiesand met its cash
requirements;
(c)
Providing information that is useful in evaluating the entity’s ability to finance its
activities and to meet its liabilities and commitments;
(d)
Providing information about the financial condition of the entity and changes in it;
and
(e)
Providing aggregate information useful in evaluating the entity’s performance in
terms of service costs, efficiency, and accomplishments.
3.3.4 Components of Financial Statements
A complete set of financial statements prepared under IPSAS 1 comprises:
(a)
A statement of financial position;
(b)
A statement of financial performance;
(c)
A statement of changes in net assets/equity;
(d)
A cash flow statement;
326
(e)
When the entity makes publicly available its approved budget, a comparison of
budget and actual amounts either as a separate additional financial statement or as a
budget column in the financial statements; and
(f)
Notes, comprising a summary of significant accounting policies and other explanatory
notes.
According to paragraph 22, the financial statements listed above are referred to by a variety
of names both within and across jurisdictions. The statement of financial position may also be
referred to as a balance sheet or statement of assets and liabilities. The statement of financial
performance may also be referred to as a statement of revenues and expenses, an income
statement, an operating statement, or a profit and loss statement. The notes may include items
referred to as schedules in some jurisdictions.
3.3.5 STATEMENT OF FINANCIAL POSITION
(A)
CURRENT ASSETS
By the provisions of paragraph 76, an asset shall be classified as current when it satisfies any
of the
following criteria:
(a)
It is expected to be realized in, or is held for sale orconsumption in, the entity’s
normal operating cycle;
(b)
It is held primarily for the purpose of being traded;
(c)
It is expected to be realized within twelve months after thereporting date; or
(d)
It is cash or a cash equivalent unless itis restricted from being exchanged or used to
settle a liability for at least twelve months after the reporting date.
All other assets are to classified as non-current.
(B)
CURRENT LIABILITIES
Paragraph 80 of IPSAS 1 provides that a liability shall be classified as current when it
satisfies any of the following criteria:
(a)
It is expected to be settled in the entity’s normal operating cycle;
(b)
It is held primarily for the purpose of being traded;
(c)
It is due to be settled within twelve months after the reporting date; or
(d)
The entity does not have an unconditional right to defer settlement of the liability for
at least twelve months after the reporting date.
327
All other liabilities shall be classified as non-current.
Information to be presented on the Face of the Statement of Financial Position
According to Paragraph 88 of IPSAS1, the minimum content of on the face of the statement
of financial position shall include line items that present the following amounts:
(a)
Property, plant, and equipment;
(b)
Investment property;
(c)
Intangible assets;
(d)
Financial assets (excluding amounts shown under (e), (g), (h) and (i));
(e)
Investments accounted for using the equity method;
(f)
Inventories;
(g)
Recoverable from non-exchange transactions (taxes and transfers);
(h)
Receivables from exchange transactions;
(i)
Cash and cash equivalents;
(j) `
Taxes and transfers payable;
(k)
Payables under exchange transactions;
(l)
Provisions;
(m)
Financial liabilities (excluding amounts shown under (j), (k) and (l));
(n)
Minority interest, presented within net assets/equity; and
(o)
Net assets/equity attributable to owners of the controlling entity.
Additional line items, headings, and sub-totals shall be presented on the face of the statement
of financial position when such presentation is relevant to an understanding of the entity’s
financial position.
3.3.6 STATEMENT OF FINANCIAL PERFORMANCE
By paragraph 102, as a minimum, the face of the statement of financial performance shall
include line items that present the following amounts for the period:
(a)
Revenue;
(b)
Finance costs;
(c)
Share of the surplus or deficit of associates and joint ventures accounted for using the
equity method;
(d)
Pre-tax gain or loss recognized on the disposal of assets or settlement of liabilities
attributable to discontinuing operations; and
(e)
Surplus or deficit.
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By paragraph 103, the following items shall be disclosed on the face of the statement of
financial performance as allocations of surplus or deficit for the
period:
(a)
Surplus or deficit attributable to minority interest; and
(b)
Surplus or deficit attributable to owners of the controlling entity.
Statement of Changes in Net Assets/Equity
By paragraph 118, an entity shall present a statement of changes in net assets/equity
Showing on the face of the statement:
(a)
Surplus or deficit for the period;
(b)
Each item of revenue and expense for the period that, as required by other Standards,
is recognized directly in net assets/equity, and the total of these items;
(c)
Total revenue and expense for the period (calculated as the sum of (a) and (b)),
showingseparately the total amounts attributable to owners of the controlling entity
and to minority interest; and
(d)
For each component of net assets/equity separately disclosed, the effects of changes
in accounting policies and corrections of errors recognized in accordance with IPSAS
3.
Paragraph 119 says that an entity shall also present, either on the face of the statement
of changes in net assets/equity or in the notes:
(a)
The amounts of transactions with owners acting in their capacity as owners, showing
separately distributions to owners;
(b)
The balance of accumulated surpluses or deficits at the beginning of the period and at
the reporting date, and the changes during the period; and
(c)
To the extent that components of net assets/equity are separately disclosed,
reconciliation between the carrying amount of each component of net assets/equity at
the beginning and the end of the period, separately disclosing each change.
Changes in an entity’s net assets/equity between two reporting dates reflect the increase or
decrease in its net assets during the period.
Self-Assessment Exercise
Discuss the objective and scope of IPSAS 1
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3.3.7 CASH FLOW STATEMENT
Cash flow information provides users of financial statements with a basis to assess (a) the
ability of the entity to generate cash and cash equivalents, and (b) the needs of the entity to
utilize those cash flows. The requirements for the presentation of the cash flow statement are
contained in IPSAS 2.
Public Sector Entity—Statement of Financial Position
As at December 31, 20X2 (in thousands of currency units)
20X2 20X1
ASSETS
Current assets
Cash and cash equivalents
X
X
Receivables
X
X
Inventories
X
X
Prepayments
X
X
Other current assets
X
X
X
X
Receivables
X
X
Investments in associates
X
X
Other financial assets
X
X
Infrastructure, plant and equipment
X
X
Land and buildings
X
X
Intangible assets
X
X
Other non-financial assets
X
X
X
X
X
X
Payables
X
X
Short-term borrowings
X
X
Current portion of long-term borrowings
X
X
Short-term provisions
X
X
Employee benefits
X
X
Superannuation
X
X
Non-current assets
Total assets
LIABILITIES
Current liabilities
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X
X
Payables
X
X
Long-term borrowings
X
X
Long-term provisions
X
X
Employee benefits
X
X
Superannuation
X
X
X
X
Total liabilities
X
X
Net assets
X
X
Other government entities
X
X
Reserves
X
X
Accumulated surpluses/(deficits)
X
X
Minority interest
X
X
Total net assets/equity
X
X
Non-current liabilities
NET ASSETS/EQUITY
Capital contributed by
Public Sector Entity—Statement of Financial Performance for the Year Ended
December 31, 20X2
(Illustrating the Classification of Expenses by Function)
(in thousands of currency units)
20X2
20X1
Revenue
Taxes
X
X
Fees, fines, penalties, and licenses
X
X
Revenue from exchange transactions
X
X
Transfers from other government entities
X
X
Other revenue
X
X
Total revenue
X
X
General public services
(X)
(X)
Defense
(X)
(X)
Expenses
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Public order and safety
(X)
(X)
Education
(X)
(X)
Health
(X)
(X)
Social protection
(X)
(X)
Housing and community amenities
(X)
(X)
Recreational, cultural, and religion
(X)
(X)
Economic affairs
(X)
(X)
Environmental protection
(X)
(X)
Other expenses
(X)
(X)
Finance costs
(X)
(X)
Total expenses
(X)
(X)
Share of surplus of associates*
X
X
Surplus/(deficit) for the period
X
X
Owners of the controlling entity
X
X
Minority interests
X
X
X
X
Attributable to:
December 31, 20X2
(Illustrating the Classification of Expenses by Nature) (in thousands of currency units)
20X2 20X1
Revenue
Taxes
X
X
Fees, fines, penalties, and licenses
X
X
Revenue from exchange transactions
X
X
Transfers from other government entities
X
X
Other revenue
X
X
Total Revenue
X
X
Wages, salaries, and employee benefits
(X)
(X)
Grants and other transfer payments
(X)
(X)
Supplies and consumables used
(X)
(X)
Depreciation and amortization expense
(X)
(X)
Impairment of property, plant, and equipment*
(X)
(X)
Other expenses
(X)
(X)
Expenses
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Finance costs
(X)
(X)
Total Expenses
(X)
(X)
Share of surplus of associates
X
X
Surplus/(deficit) for the period
X
X
Owners of the controlling entity
X
X
Minority interest
X
X
X
X
Attributable to:
3.3.8 Comparison with IAS 1
According to IPSASB (2014) IPSAS 1 is drawn primarily from IAS 1 (2003) and includes
amendments made to IAS 1 as part of the Improvements to IFRSs issued in May 2008 and
April 2009respectively. At the time of issuing this Standard, the IPSASB has not considered
the applicability of IFRS 5, Non-current Assets Held for Sale and Discontinued Operations,
to public sector entities; therefore IPSAS 1 does not reflect amendments made to IAS 1
consequent upon the issuing of IFRS 5. The main differences between IPSAS 1 and IAS 1 are
as follows:
1.
Commentary additional to that in IAS 1 has been included in IPSAS 1 to clarify the
applicability of the Standard to accounting by public sector entities, e.g., discussion
on the application of the going concern concept has been expanded.
2.
AS 1 allows the presentation of either a statement showing all changes in net
assets/equity, or a statement showing changes in net assets/equity, other than those
arising from capital
transactions with owners and distributions to owners in their
capacity as owners. IPSAS 1 requires the presentation of a statement showing all
changes in net assets/equity.
3.
IPSAS 1 uses different terminology, in certain instances, from IAS 1. The most
significant examples are the use of the terms “statement of financial performance,”
and “net assets/equity” in IPSAS 1. The equivalent terms in IAS 1 are “income
statement,” and “equity”.
4.
IPSAS 1 does not use the term “income,” which in IAS 1 has a broader meaning than
the term “revenue.”
5.
IAS 1 defines “International Financial Reporting Standards (IFRSs)” to include
IFRSs, IASs, and SIC/IFRIC Interpretations. IPSAS 1 does not define “International
Public Sector Accounting Standards.”
333
5.
IPSAS 1 contains a different set of definitions of technical terms from IAS 1
(paragraph 7).
6.
IPSAS 1 contains commentary on the responsibility for the preparation of financial
statements. IAS 1 does not include the same commentary (paragraphs 19 20).
7.
IPSAS 1 uses the phrase “the objective of financial statements set out in this
Standard” to replace the equivalent phrase “the objective of financial statement set
out in the Framework” in IAS 1. This is because an equivalent Framework in IPSASs
does not exist.
8.
IPSAS 1 contains commentary on timeliness of financial statements, because of the
lack of an equivalent Framework in IPSASs (paragraph 69).
9.
IPSAS 1 does not explicitly preclude the presentation of items of revenue and expense
as extraordinary items, either on the face of the statement of financial performance or
in the notes. IAS 1 prohibits any items of income and expense to be presented as
extraordinary items either on the face of the income statement or in the notes.
10.
IPSAS 1 contains a transitional provision allowing the non-disclosure of items that
have been excluded from the financial statements due to the application of a
transitional provision in another IPSAS (paragraph 151).
11.
IPSAS 1 contains an authoritative summary of qualitative characteristics (based on
the IASB framework) in Appendix A.
3.4
IPSAS 2—CASH FLOW STATEMENTS
3.4.1 INTRODUCTION
According to IPSASB (2014), the cash flow statement identifies (a) the sources of cash
inflows, (b) the items on which cash was expended during the reporting period, and (c) the
cash balance as at the reporting date. Information about the cash flows of an entity is useful in
providing users of financial statements with information for both accountability and decisionmaking purposes. Cash flow information allows users to ascertain how a public sector entity
raised the cash it required to fund its activities, and the manner in which that cash was used
The standard is meant for an entity that prepares and presents financial statements under the
accrual basis of accounting. This Standard applies to all public sector entities other than
Government Business Enterprises as defined in IPSAS 1 on Presentation of Financial
Statements.
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3.4.2 Benefits of Cash Flow Information
The standard identified the following benefits of cash flow information:
1.
Information about the cash flows of an entity is useful in assisting users to
Predict:
2.
(a)
the future cash requirements of the entity,
(b)
its ability to generate cash flows in the future, and
(c)
its ability to fund changes in the scope and nature of its activities.
A cash flow statement also provides a means by which an entity can discharge its
accountability for cash inflows and cash outflows during the reporting period.
3.
A cash flow statement, when used in conjunction with other financial statements,
provides information that enables users to evaluate the changes:
i
in net assets/equity of an entity,
ii.
Its financial structure (including its liquidity and solvency),
iii.
Its ability to affect the amounts and timing of cash flows in order to adapt to
changing circumstances and opportunities.
4.
It also enhances the comparability of the reporting of operating performance by
different entities, because it eliminates the effects of using different accounting
treatments for the same transactions and other events.
5.
Historical cash flow information is often used as an indicator of the amount, timing,
and certainty of future cash flows. It is also useful in checking the accuracy of past
assessments of future cash flows.
3.4.3 Presentation of a Cash Flow Statement
Paragraph 18 states that the cash flow statement shall report cash flows during the period
classified by operating, investing, and financing activities.
Operating Activities
According to paragraph 21, the amount of net cash flows arising from operating activities is a
key indicator of the extent to which the operations of the entity are funded:
(a) By way of taxes (directly and indirectly); or
(b) From the recipients of goods and services provided by the entity
Examples of cash flows from operating activities are:
(a)
Cash receipts from taxes, levies, and fines;
(b)
Cash receipts from charges for goods and services provided by the entity;
(c)
Cash receipts from grants or transfers and other appropriations or other budget
authority made by central government or other public sector entities;
335
(d)
Cash receipts from royalties, fees, commissions, and other revenue;
(e)
Cash payments to other public sector entities to finance their operations (not including
loans);
(f)
Cash payments to suppliers for goods and services;
(g)
Cash payments to and on behalf of employees;
(h)
Cash receipts and cash payments of an insurance entity for premiums and claims,
annuities, and other policy benefits;
(i)
Cash payments of local property taxes or income taxes (where appropriate) in relation
to operating activities;
(j)
Cash receipts and payments from contracts held for dealing or trading purposes;
(k)
Cash receipts or payments from discontinuing operations; and
(l)
Cash receipts or payments in relation to litigation settlements.
Investing Activities
According to paragraph 25, the separate disclosure of cash flows arising from investing
activities is
important because the cash flows represent the extent to which cash outflows have been made
for resources that are intended to contribute to the entity’s future service delivery.
Examples of cash flows arising from investing activities are:
(a)
Cash payments to acquire property, plant, and equipment, intangibles, and other longterm
assets. These payments include those relating to capitalized development costs
and self-constructed property, plant, and equipment;
(b)
Cash receipts from sales of property, plant, and equipment, intangibles, and other
long-term assets;
(c)
Cash payments to acquire equity or debt instruments of other entities and interests in
joint ventures (other than payments for those instruments considered to be cash
equivalents or those held for dealing or trading purposes);
(d)
Cash receipts from sales of equity or debt instruments of other entities and interests in
joint ventures (other than receipts for those dealing or trading purposes);
(e)
Cash advances and loans made to other parties (other than advances and loans made
by a public financial institution);
(f)
Cash receipts from the repayment of advances and loans made to other parties (other
than advances and loans of a public financial institution);
336
(g)
Cash payments for futures contracts, forward contracts, option contracts, and swap
contracts, except when the contracts are held for dealing or trading purposes, or the
payments are classified as financing activities; and
(h)
Cash receipts from futures contracts, forward contracts, option contracts, and swap
contracts, except when the contracts are held for dealing or trading purposes, or the
receipts are classified as financing activities.
Financing Activities
According to paragraph 26, the separate disclosure of cash flows arising from financing
activities is important, because it is useful in predicting claims on future cash flows by
providers of capital to the entity. Examples of cash flows arising from financing activities
are:
(a)
Cash proceeds from issuing debentures, loans, notes, bonds, mortgages, and other
short or long-term borrowings;
(b)
Cash repayments of amounts borrowed; and
(c)
Cash payments by a lessee for the reduction of the outstanding liability relating to a
finance lease.
Reporting Cash Flows from Operating Activities
Under paragraph 27 of IPSAS, an entity shall report cash flows from operating activities
using either:
(a)
The direct method, whereby major classes of gross cash receipts and gross cash
payments are disclosed; or
(b)
The indirect method, whereby surplus or deficit is adjusted for the effects of
transactions of a noncash nature, any deferrals or accruals of past or future operating
cash receipts or payments, and items of revenue or expense associated with investing
or financing cash flows.
Reporting entities are encouraged to report cash flows from operating activities using the
direct method because the direct method provides information that:
(a)
May be useful in estimating future cash flows, and
(b)
May not be available under the indirect method.
Reporting Cash Flows from Investing and Financing Activities
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An entity shall report separately major classes of gross cash receipts and gross cash payments
arising from investing and financing activities, except to the extent that cash flows described
in paragraphs 32 and 35 are reported on a net basis.
Cash flow from investing activities:
These are cash receipts or payments to acquire resources that are intended to contribute to the
entity’s future public service delivery. Examples of such items include::
(i)
Cash payments to acquire property, plant and equipment, intangibles and other longterm assets. Payments relating to capitalized development costs and self-constructed
property, plant and equipment are also included;
(ii)
Cash receipts from sale of property plant and equipment, intangibles and other longterm assets;
(iii)
Cash payments to acquire equity or debt instruments of other entities and interest in
joint ventures (other than payments for those instruments considered to be cash
equivalents and those held for dealing or trading purposes);
(iv)
Cash receipts from sale of equity or debt instruments of other entities and interests in
joint ventures (other than receipts for those instruments considered to the cash
equivalents and those held for dealing or trading purposes);
(v)
Cash advances and loans made to other parties (other than advances and loans made
by a public financial institution);
(vi)
Cash receipts from the repayment of advances and loans made to other parties (other
than advances and loans made by a public financial institution);
(vii)
Cash payments for future contracts, forward contracts, option contracts and swap
contracts except when the contracts are held for dealing or trading purposes
or the
payments are classified as financing activities;
(viii) Cash receipts from future contracts, forward contracts, option contracts and swap
contracts except when the contracts are held for dealing or trading purposes, or the
payments are classified as financing activities.
Cash flow from financing activities:
They show future claims by providers of capital to the entity. Items of cash flow from
financing activities include:
338
(a)
Cash proceeds from issuing debentures, loans, notes, bonds, mortgages and
other short or long-term borrowings;
(b)
Cash repayments of amounts borrowed;
(c)
Cash payments by a lessee for the reduction of the outstanding liability relating to a
finance lease.
3.4.4 Illustrative Examples
These examples accompany, but are not part of, IPSAS 2.
Cash Flow Statement (For an Entity Other Than a Financial Institution)
Direct Method Cash Flow Statement (paragraph 27(a))
Public Sector Entity—Consolidated Cash Flow Statement for Year Ended
December 31 20X2
20X2
20X1
CASH FLOWS FROM OPERATING ACTIVITIES ^’000 ^’000
Receipts
Taxation
X
X
Sales of goods and services
X
X
Grants
X
X
Interest received
X
X
Other receipts
X
X
Employee costs
(X)
(X)
Superannuation
(X)
(X)
Suppliers
(X)
(X)
Interest paid
(X)
(X)
Other payments
(X)
(X)
Net cash flows from operating activities
X
X
Purchase of plant and equipment
(X)
(X)
Proceeds from sale of plant and equipment
X
X
Proceeds from sale of investments
X
X
Purchase of foreign currency securities
(X)
(X)
Net cash flows from investing activities
(X)
(X)
Payments
CASH FLOWS FROM INVESTING ACTIVITIES
339
CASH FLOWS FROM FINANCING ACTIVITIES
Proceeds from borrowings
X
X
Repayment of borrowings
(X)
(X)
Distribution/dividend to government
(X)
(X)
Net cash flows from financing activities
X
X
Net increase/(decrease) in cash and cash equivalents X
X
Cash and cash equivalents at beginning of period
X
X
Cash and cash equivalents at end of period
X
X
Notes to the Cash Flow Statement
(a) Cash and Cash Equivalents
Cash and cash equivalents consist of cash on hand, balances with banks, and investments in
money market instruments. Cash and cash equivalents included in the cash flow statement
comprise the following statement of financial position amounts:
20X2
20X1
^’000 ^’000
Cash on hand and balances with banks
X
X
Short-term investments
X
X
X
X
The entity has undrawn borrowing facilities of X, of which X must be used on infrastructure
projects.
(b) Property, Plant and Equipment
During the period, the economic entity acquired property, plant, and equipment with an
aggregate cost of X, of which X was acquired by means of capital grants by the national
government. Cash payments of X were made to purchase property, plant and equipment.
(c) Reconciliation of Net Cash Flows from Operating Activities to Surplus/(Deficit)
Surplus/(deficit)
20X2
20X1
^”000
^’000
X
X
X
X
Non-cash movements
Depreciation
340
Amortization
X
X
Increase in provision for doubtful debts
X
X
Increase in payables
X
X
Increase in borrowings
X
X
Increase in provisions relating to employee costs
X
X
(Gains)/losses on sale of property, plant and equipment (X)
(X)
(Gains)/losses on sale of investments
(X)
(X)
Increase in other current assets
(X)
(X)
Increase in investments due to revaluation
(X)
(X)
Increase in receivables
(X)
(X)
Net cash flows from operating activities
X
X
Indirect Method Cash Flow Statement (paragraph 27(b))
Public Sector Entity—Consolidated Cash Flow Statement for Year Ended
December 31, 20X2 (In Thousands of Currency Units)
20X2
CASH FLOWS FROM OPERATING ACTIVITIES
Surplus/(deficit)
20X1
^’000
^’000
X
X
Depreciation
X
X
Amortization
X
X
Increase in provision for doubtful debts
X
X
Increase in payables
X
X
Increase in borrowings
X
X
Increase in provisions relating to employee costs
X
X
(Gains)/losses on sale of property, plant and equipment
(X)
(X)
(Gains)/losses on sale of investments
(X)
(X)
Increase in other current assets
(X)
(X)
Increase in investments due to revaluation
(X)
(X)
Increase in receivables
(X)
(X)
Net cash flows from operating activities
X
X
Non-cash movements
Notes to the Cash Flow Statement
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(a) Cash and Cash Equivalents
Cash and cash equivalents consist of cash on hand, balances with banks, and investments in
money market instruments. Cash and cash equivalents included in the cash flow statement
comprise the following statement of financial position amounts:
20X2
20X1
^’000
^’000
Cash on hand and balances with banks
X
X
Short-term investments
X
X
X
X
The entity has undrawn borrowing facilities of X, of which X must be used on infrastructure
projects.
(b) Property, Plant and Equipment
During the period, the economic entity acquired property, plant, and equipment with an
aggregate cost of X, of which X was acquired by means of capital grants by the national
government. Cash payments of X were made to purchase property, plant and equipment.
3.4.5 Comparison with IAS 7
IPSAS 2, Cash Flow Statements is drawn primarily from IAS 7, Cash Flow Statements and
includes an amendment made to IAS 7 as part of the Improvements to IFRSs issued in April
2009. The main differences between IPSAS 2 and IAS 7 are as follows:
1.
Commentary additional to that in IAS 7 has been included in IPSAS 2 to clarify the
applicability of the standards to accounting by public sector entities.
2.
IPSAS 2 uses different terminology, in certain instances, from IAS 7. The most
significant examples are the use of the terms “revenue,” “statement of financial
performance,” and “net assets/equity” in IPSAS 2. The equivalent terms in IAS 7 are
“income,” “income statement,” and “equity.”
3.
IPSAS 2 contains a different set of definitions of technical terms from IAS 7
(paragraph 8).
4.
In common with IAS 7, IPSAS 2 allows either the direct or indirect method to be used
to present cash flows from operating activities. Where the direct method is used to
present cash
flows from operating activities, IPSAS 2 encourages disclosure of a
reconciliation of surplus or deficit to operating cash flows in the notes to the financial
statements (paragraph 29).
342
5.
The Illustrative Examples accompanying IPSAS 2 do not include an illustration of a
Cash
3.5
Flow Statement for a financial institution.
IPSAS 3—ACCOUNTING POLICIES, CHANGES IN ACCOUNTING
ESTIMATES AND ERRORS
According to IPSAS 3.1, the objective of the Standard is to prescribe the criteria for selecting
and changing accounting policies, together with the:
(a)
accounting treatment, and disclosure of changes in accounting policies,
(b)
changes in accounting estimates, and
(c)
the corrections of errors.
The Standard main objective is to enhance the relevance and reliability of an entity’s
financial statements, and the comparability of those financial statements over time and with
the financial statements of other entities.
This Standard is:
1
Applied in selecting and applying accounting policies,
2.
Accounting for changes in accounting policies,
3.
Accounting for changes in accounting estimates, and c
4.
Corrections of prior period errors.
The Standard applies to all public sector entities other than Government Business Enterprises.
3.5.1 ACCOUNTING POLICIES
These are the specific principles, bases, conventions, rules, and practices applied by an entity
in preparing and presenting financial statements.
Changes in Accounting Policies:
According to the standard, the following constitute a change in accounting policy:
(a)
A change from one basis of accounting to another basis of accounting.
(b)
A change in the accounting treatment, recognition or measurement of a
transaction, event or condition within a basis of accounting.
The following are not changes in accounting policies:
(a)
The application of an accounting policy for transactions, other events or
conditions
that differ in substance from those previously occurring; and
(b)
The application of a new accounting policy for transactions, other events or
conditions that did not occur previously or that were immaterial.
According to IPSAS 3.17, an entity shall change an accounting policy only if the change:
343
(a)
Is required by an IPSAS; or
(b)
Results in the financial statements providing reliable and more relevant information
about the effects of transactions, other events, and conditions on the entity’s financial
position, financial performance, or cash flows.
Prior period errors:
These are omissions from, and misstatements in, the entity’s financial statements for one or
more prior periods arising from a failure to use, or misuse of, reliable information that:
(a)
Was available when financial statements for those periods were authorized for issue;
and
(b)
Could reasonably be expected to have been obtained and taken into account in the
preparation and presentation of those financial statements.
Such errors include the effects of mathematical mistakes, mistakes in applying accounting
policies, oversights or misinterpretations of facts, and fraud.
Materiality
According to IPSAS 3.8, assessing whether an omission or misstatement could influence
decisions of users, and so be material, requires consideration of the characteristics of those
users. Users are assumed to have a reasonable knowledge of the public sector and economic
activities and accounting and a willingness to study the information with reasonable
diligence. Therefore, the assessment needs to take into account how users with such attributes
could reasonably be expected to be influenced in making and evaluating decisions.
Disclosure
According to IPSAS 3.33, the following shall be disclosed when there is initial application of
an IPSAS:
(1)
has an effect on the current period or any prior period,
(2)
would have such an effect, except that it is impracticable to determine the amount of
the adjustment, or
(3)
might have an effect on future periods:
(a)
The title of the Standard;
(b)
When applicable, that the change in accounting policy is made in accordance
with its transitional provisions;
(c)
The nature of the change in accounting policy;
(d)
When applicable, a description of the transitional provisions;
344
(e)
When applicable, the transitional provisions that might have an effect on
future periods;
(f)
For the current period and each prior period presented, to the extent
practicable, the amount of the adjustment for each financial statement line
item affected;
(g)
The amount of the adjustment relating to periods before those presented, to the
extent practicable; and
(h)
If retrospective application required by paragraph 24(a) or (b) is impracticable
for a particular prior period, or for periods before those presented, the
circumstances that
led
to the existence of that condition and a
description of how and from when the change in accounting policy has been
applied.
According to IPSAS 3.34, when the change above is a voluntary change in accounting policy,
then the following shall be disclosed:
(a)
The nature of the change in accounting policy;
(b)
The reasons why applying the new accounting policy provides reliable and more
relevant information;
(c)
For the current period and each prior period presented, to the extent practicable, the
amount of the adjustment for each financial statement line item affected;
(d)
The amount of the adjustment relating to periods before those presented, to the extent
practicable; and
(e)
If retrospective application is impracticable for a particular prior period, or for periods
before those presented, the circumstances that led to the existence of that condition
and a description of how and from when the change in accounting policy has been
applied.
According to IPSAS 3.35, when an entity has not applied a new IPSAS that has been issued
but is not yet effective, the entity shall disclose:
(a)
This fact; and
(b)
Known or reasonably estimable information relevant to assessing the possible impact
that application of the new Standard will have on the entity’s financial statements in
the period of initial application.
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3.5.2 CHANGES IN ACCOUNTING ESTIMATES
A change accounting estimate in is an adjustment of the carrying amount of an asset or a
liability, or the amount of the periodic consumption of an asset, that results from the
assessment of the present status of, and expected future benefits and obligations associated
with, assets and liabilities. Changes in accounting estimates result from new information or
new developments and, accordingly, are not correction of errors.
,
Accounting estimates may be required of:
(a)
Tax revenue due to government;
(b)
Bad debts arising from uncollected taxes;
(c)
Inventory obsolescence;
(d)
The fair value of financial assets or financial liabilities;
(e)
The useful lives of, or expected pattern of consumption of future economic benefits or
service potential embodied in, depreciable assets, or the percentage completion of
road construction; (f) Warranty obligations.
Self-Assessment Exercise
What do understand by accounting change in accounting estimate?
3.5.3 Comparison with IAS 8
According to IASB (2016), the main differences between IPSAS 3 and IAS 8 are as follows:
1.
Commentary additional to that in IAS 8 has been included in IPSAS 3 to clarify the
applicability of the standards to accounting by public sector entities.
2.
IPSAS 3 uses different terminology, in certain instances, from IAS 8. The most
significant examples are the use of the terms “statement of financial performance,”
“accumulated surplus or deficit,” and “net assets/equity” in IPSAS 3. The equivalent
terms in IAS 8 are “income
3.
statement,” “retained earnings,” and “equity.”
IPSAS 3 does not use the term “income,” which in IAS 8 has a broader meaning than
the term “revenue.”
4.
IPSAS 3 contains a different set of definitions of technical terms from IAS
8(paragraph 7).
5.
IPSAS 3 has a similar hierarchy to IAS 8, except that the IPSASB does not yet have a
conceptual framework.
6.
IPSAS 3 does not require disclosures about adjustments to basic or diluted earnings
per share. IAS 8 requires disclosure of amount of adjustment or correction for basic or
diluted earnings per share.
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3.6
IPSAS 4―THE EFFECTS OF CHANGES IN FOREIGN EXCHANGE RATES
3.6.1 INTRODUCTION
There are two ways in which an entity may carry on foreign activities: (i) It may have
transactions in foreign currencies, or (ii) it may have foreign operations. The objective of this
Standard is to prescribe how to include foreign currency transactions and foreign operations
in the financial statements of an entity, and how to translate financial statements into a
presentation currency. The principal issues are (a) which exchange rate(s) to use, and (b) how
to report the effects of changes in exchange rates in the financial statements.
An entity that prepares and presents financial statements under the accrual basis of
accounting shall apply the Standard:
(a)
In accounting for transactions and balances in foreign currencies, except for those
derivative transactions and balances that are within the scope of IPSAS 29, Financial
Instruments: Recognition and Measurement;
(b)
In translating the financial performance and financial position of foreign operations
that are included in the financial statements of the entity by consolidation,
proportionate consolidation, or by the equity method; and
(c)
In translating an entity’s financial performance and financial position into a
presentation currency.
This Standard applies to all public sector entities other than Government
Business Enterprises.
3.6.2 FUNCTIONAL CURRENCY
According to IPSAS 4.11, is the currency of the primary economic environment in which an
entity operates and primarily generates and expends cash. An entity considers the following
factors in determining its functional currency:
(a)
The currency:
(i)
(ii)
That revenue is raised from, such as taxes, grants, and fines;
That mainly influences sales prices for goods and services (this will often be the
currency in which sales prices for its goods and services are denominated and
settled); and
(iii) Of the country whose competitive forces and regulations mainly determine the
sale prices of its goods and services.
(b)
The currency that mainly influences labour, material, and other costs of providing
goods and services (this will often be the currency in which such costs are
denominated and settled).
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(c)
The currency in which funds from financing activities (i.e., issuing debt and equity
instruments) are generated.
(d)
The currency in which receipts from operating activities are usually retained.
(e)
Whether the activities of the foreign operation are carried out as an extension of the
reporting entity, rather than being carried out with a significant degree of autonomy.
(f)
Whether transactions with the reporting entity are a high or a low proportion of the
foreign operation’s activities.
(g)
Whether cash flows from the activities of the foreign operation directly affect the cash
flows of the reporting entity and are readily available for remittance to it.
(h)
Whether cash flows from the activities of the foreign operation are sufficient to
service existing and normally expected debt obligations without funds being made
available by the reporting entity.
3.6.3 REPORTING FOREIGN CURRENCY TRANSACTIONS IN THE
FUNCTIONAL CURRENCY
Initial Recognition
By IPSAS 4.24, a foreign currency transaction shall be recorded, on initial recognition in
the functional currency, by applying to the foreign currency amount the spot exchange rate
between the functional currency and the foreign currency at the date of the transaction.
Reporting at Subsequent Reporting Dates
By the provisions of 4.27, at each reporting date:
(a)
Foreign currency monetary items shall be translated using the closing rate;
(b)
Non-monetary items that are measured in terms of historical cost in a foreign currency
shall be translated using the exchange rate at the date of the transaction; and
(c)
Non-monetary items that are measured at fair value in a foreign currency shall be
translated using the exchange rates at the date when the fair value was determined.
Change in Functional Currency
When there is a change in an entity’s functional currency, the entity shall apply the
translation procedures applicable to the new functional currency prospectively from the date
of the change.
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3.6.4 USE OF A PRESENTATION CURRENCY OTHER THAN THE
FUNCTIONAL CURRENCY
An entity may present its financial statements in any currency (or currencies). If the
presentation currency differs from the entity’s functional currency, it translates its financial
performance and financial position into the presentation currency. 44. The financial
performance and financial position of an entity whose functional currency is not the currency
of a hyperinflationary economy shall be translated into a different presentation currency using
the following procedures:
(a)
Assets and liabilities for each statement of financial position presented (i.e., including
comparatives) shall be translated at the closing rate at the date of that statement of
financial position;
(b)
Revenue and expenses for each statement of financial performance (i.e., including
comparatives) shall be translated at exchange rates at the dates of the transactions;
and
(c)
All resulting exchange differences shall be recognized as a separate component of net
assets/equity.
Self-Assessment Exercise
What is a functional currency?
3.6.5 Comparison with IAS 21
IPSAS 4, The Effects of Changes in Foreign Exchange Rates is drawn primarily from IAS
21, The Effects of Changes in Foreign Exchange
The main differences between IPSAS 4 and IAS 21 are as follows:
1.
Commentary additional to that in IAS 21 has been included in paragraphs 1, 11, 13,
26, 43, 45, 67, 68, and 72 of IPSAS 4 to clarify the applicability of the standards to
accounting by public sector entities.
2.
IPSAS 4 contains an additional transitional provision allowing an entity, when first
adopting IPSASs, to deem cumulative translation differences existing at the date of
first adoption of accrual IPSASs as zero (paragraph 67). This transitional provision is
adapted from IFRS 1, First-time Adoption of International Financial Reporting
Standards.
3.
IPSAS 4 uses different terminology, in certain instances, from IAS 21. The most
significant examples are the use of the terms “revenue,” “economic entity,”
“statement of financial performance,” and “net assets/equity” in IPSAS 4. The
349
equivalent terms in IAS 21 are “income,” “group,” “statement of comprehensive
income,” and “equity.”
3.7
IPSAS 5—BORROWING COSTS
The Standard is applicable in accounting for borrowing costs. It applies to all public sector
entities other than Government Business Enterprises.
3.7.1 Borrowing Costs
Borrowing costs are interest and other expenses incurred by an entity in connection with the
borrowing of funds. Within the contemplation of the Standard, borrowing costs may include:
(a)
Interest on bank overdrafts and short-term and long-term borrowings;
(b)
Amortization of discounts or premiums relating to borrowings;
(c)
Amortization of ancillary costs incurred in connection with the arrangement of
borrowings;
(d)
Finance charges in respect of finance leases and service concession arrangements; and
(e)
Exchange differences arising from foreign currency borrowings, to the extent that
they are regarded as an adjustment to interest costs.
3.7.2 QUALIFYING ASSETS
According to the standard, examples of qualifying assets are office buildings, hospitals,
infrastructure assets such as roads, bridges and power generation facilities, and inventories
that require a substantial period of time to bring them to a condition ready for use or sale.
Other investments, and those assets that are routinely produced over a short period of time,
are not qualifying assets. Assets that are ready for their intended use or sale when acquired
also are not qualifying assets.
3.7.3 Borrowing Costs—Benchmark Treatment
Borrowing costs are recognized as an expense in the period in which they are incurred. Under
the benchmark treatment, borrowing costs are recognized as an expense in the period in
which they are incurred, regardless of how the borrowings are applied. The financial
statements are required to disclose the accounting policy adopted for borrowing costs.
3.7.4 Borrowing Costs—Allowed Alternative Treatment
IPSAS 5.17 states that borrowing costs shall be recognized as an expense in the period in
which they are incurred, except to the extent that they are capitalized. Borrowing costs that
are directly attributable to the acquisition, construction, or production of a qualifying asset
350
shall be capitalized as part of the cost of that asset. The amount of borrowing costs eligible
for capitalization shall be determined in accordance with this Standard.
Under the allowed alternative treatment (paragraph 18), borrowing costs that are directly
attributable to the acquisition, construction, or production of an asset are included in the cost
of that asset. Such borrowing costs are capitalized as part of the cost of the asset when (a) it is
probable that they will result in future economic benefits or service potential to the entity, and
(b) the costs can be measured reliably. Other borrowing costs are recognized as an expense in
the period in which they are incurred.
3.7.5 Borrowing Costs Eligible for Capitalization
The borrowing costs that are directly attributable to the acquisition, construction, or
production of a qualifying asset are those borrowing costs that would have been avoided if
the outlays on the qualifying asset had not been made. When an entity borrows funds
specifically for the purpose of obtaining a particular qualifying asset, the borrowing costs that
directly relate to that qualifying asset can be readily identified.
3.7.6 Commencement, suspension and cessation of capitalization
The capitalization of borrowing costs as part of the cost of a qualifying asset shall commence
when:
(a)
Outlays for the asset are being incurred;
(b)
Borrowing costs are being incurred; and
(c)
Activities that are necessary to prepare the asset for its intended use or sale are in
progress.
Capitalization of borrowing costs shall be suspended during extended periods in which active
development is interrupted, and expensed.
Capitalization of borrowing costs shall cease when substantially all the activities necessary to
prepare the qualifying asset for its intended use or sale are complete.
3.7.7 Disclosure
The Standard requires the following disclosures in financial statements:
(a)
The accounting policy adopted for borrowing costs;
(b)
The amount of borrowing costs capitalized during the period; and
(c)
The capitalization rate used to determine the amount of borrowing costs eligible for
capitalization (when it was necessary to apply a capitalization rate to funds borrowed
generally).
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3.7.8 Comparison with IAS 23
The Standard is drawn primarily from IAS 23, Borrowing Costs (1993). The main differences
between IPSAS 5 and IAS 23 are as follows:
1. Commentary additional to that in IAS 23 has been include
2.
3. d in IPSAS 5 to clarify the
applicability of the standards to accounting by public
sector entities.
2.
IPSAS 5 uses different terminology, in certain instances, from IAS 23. The most
significant examples are the use of the terms “revenue,” “statement of financial
performance,” and “net assets/equity” in IPSAS 5. The equivalent terms in IAS 23 are
“income,” “income statement,” and “equity.”
3.
IPSAS 5 contains a different set of definitions of technical terms from IAS 23
(paragraph 5).
Self-Assessment Exercise
What are the major differences between IPSAS 5 and IAS 23?
4.0
SUMMARY
In this unit’ you learnt about the objectives and scope of International Public Sector
Accounting Standards. You also learnt about the contents of;
IPSAS 1-
Presentation of financial statement
IPSAS 2-
Cash flow statement
IPSAS 3-
Accounting policies, changes in accounting estimates and errors
IPSAS 4-
Effects of changes in foreign exchange rates
IPSAS 5-
Borrowing costs
5.0
CONCLUSION
This unit discussed the International Public Sector Accounting standards generally and
IPSAS 1, 2, 3, 4, and 5 respectively. In the subsequent units, we will discuss the remaining
IPSAS.
6.0
TUTOR MARKED ASSIGNMENT
352
1.
Outline the process for setting international public sector accounting standards
2.
What are the benefits of the cash flow statement?
3.
Describe the use of a presentation currency other than the functional currency
4.
Explain the borrowing costs that are eligible for capitalisation.
7.0
REFERENCES/FURTHER READING
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
IPSASB (2016) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume II, New York: IFAC
IPSASB (2014) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume I, New York: IFAC
Ogiedu, K.O. (2016) Lecture notes on Public Sector Accounting and Finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government Accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
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UNIT 3
INTERNATIONAL PUBLIC SECTOR ACCOUNTING
STANDARDS (IPSAS) 6 -11
CONTENTS
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
IPSAS 6—Consolidated and separate financial statements
3.1.2
Significant definitions
3.1.3
Presentation of Consolidated Financial Statements
3.1.4
Scope of Consolidated Financial Statements
3.1.5
Regulatory and Purchase Power
3.1.6
Determining Whether Control Exists for Financial Reporting Purposes
3.1.7
Accounting for Controlled Entities, Jointly Controlled Entities and
Associates in Separate Financial Statements
3.1.8
3.2
Comparison with IAS 27
IPSAS 7—Investments in associates
3.2.1Significant Definitions
3.3
3.4
3.2.2
Equity Method
3.2.3
Disclosure
3.2.4
Comparison with IAS 28
IPSAS 8—Interests in joint ventures
3.3.1
Binding Arrangement
3.3.2
Jointly Controlled Operations
3.3.3
Jointly Controlled Assets
3.3.4
Jointly Controlled Entities
3.3.5
FINANCIAL STATEMENTS OF A VENTURER
3.3.6
Disclosure
3.3.7
Comparison with IAS 31
IPSAS 9—Revenue from exchange transactions
3.4.1
Rendering of Services
3.4.2
Sale of Goods
3.4.3
Interest, Royalties, and Dividends or Similar Distributions
3.4.4
Disclosure
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3.4.5
3.5
Comparison with IAS 18
IPSAS 10—Financial reporting in hyperinflationary economies
3.5.1
Indicators of hyperinflation
3.5.2
The Restatement of Financial Statements :Statement of Financial
Position
3.6
3.5.3
Statement of Financial Performance
3.5.4
Gain or Loss on Net Monetary Position
3.5.5
Cash Flow Statement
3.5.6
Selection and Use of the General Price Index
3.5.7
Economies ceasing to be Hyperinflationary
3.5.8
Disclosures
3.5.9
Comparison with IAS 29
IPSAS 11—Construction contracts
3.6.1
Significant Definitions
3.6.2
Combining and Segmenting Construction Contracts
3.6.3
Contract Revenue
3.6.4
Contract Costs
3.5.5
Recognition of Contract Revenue and Expenses
3.6.6
Fixed price contracts
3.6.7
Cost plus or cost-based contract
3.6.8
Percentage of completion method
3.6.9
Changes in Estimates
3.6.10 Disclosure
3.6.11 comparison with IAS 11
4.0
SUMMARY
5.0
CONCLUSION
6.0
TUTOR MARKED ASSIGNMENT
7.0
REFERENCES/ FURTHER READING
1.0
INTRODUCTION
In this chapter, you will be introduced to IPSAS 6 to 11. You will learn the IPSAS provisions
for the preparation of Consolidated and separate financial statements and the accounting
treatment of Investments in associates. You will also learn the accounting treatment of
interests in joint ventures the revenue from exchange transactions. Finally, you will learn the
355
provisions of IPSAS on financial reporting in hyperinflationary economies and construction
contracts.
2.0
OBJECTIVES
After studying this unit, you should be able to:
1
State the IPSAS PROVISIONS on the preparation of consolidated and separate
financial statements
2.
Account for investments in associates.
3.
Account for interests in joint ventures
4.
Account for revenue from exchange transactions
5
Prepare financial statements in hyperinflationary economies
6
Appreciate accounting for construction contracts
3.0
MAIN CONTENT
3.1
IPSAS 6—CONSOLIDATED AND SEPARATE FINANCIAL STATEMENTS
The Standard deals with the presentation of the financial statements of an economic entity
presented as those of a single entity. An entity that prepares and presents financial statements
under the accrual basis of accounting shall apply this Standard in the preparation and
presentation of consolidated financial statements for an economic entity (IPSAS 6.1).
The Standard also applies in accounting for controlled entities, jointly controlled entities, and
associates when an entity elects, or is required by local regulations, to present separate
financial statements. The Standard applies to all public sector entities other than Government
Business Enterprises.
3.1.2 SIGNIFICANT DEFINITIONS
Consolidated financial statements:
These are the financial statements of an economic entity presented as those of a single entity.
Controlled entity is an entity, including an unincorporated entity such as a partnership, which
is under the control of another entity (known as the controlling entity).
Controlling entity:
This is an entity that has one or more controlled entities.
The cost method:
This is a method of accounting for an investment, whereby the investment is recognized at
cost. The investor recognizes revenue from the investment only to the extent that the investor
is entitled to receive distributions from accumulated surpluses of the investee arising after the
356
date of acquisition. Entitlements due or received in excess of such surpluses are regarded as a
recovery of investment, and are recognized as a reduction of the cost of the investment.
Minority interest:
This is that portion of the surplus or deficit and net assets/equity of a controlled entity
attributable to net assets/equity interests that are not owned, directly or indirectly, through
controlled entities, by the controlling entity. Separate financial statements are those presented
by a controlling entity, an investor in an associate, or a venturer in a jointly controlled entity,
in which the investments are accounted for on the basis of the direct net assets/equity interest
rather than on the basis of the reported results and net assets of the investees.
3.1.3 Presentation of Consolidated Financial Statements
By IPSAS 6.15, a controlling entity, other than a controlling entity described in paragraph 16,
shall present consolidated financial statements in which it consolidates its controlled entities
in accordance with this Standard. A controlling entity need not present consolidated financial
statements if and only if:
(a)
The controlling entity is:
(i)
Itself a wholly-owned controlled entity, and users of such financial statements
are unlikely to exist or their information needs are met by its controlling
entity’s consolidated financial statements; or
(ii)
A partially-owned controlled entity of another entity and its other owners,
including those not otherwise entitled to vote, have been informed about, and
do not object to, the controlling entity not presenting consolidated financial
statements;
(b)
The controlling entity’s debt or equity instruments are not traded in a public market (a
domestic or foreign stock exchange or an over-the-counter market, including local and
regional markets);
(c)
The controlling entity did not file, nor is it in the process of filing, its financial
statements with a securities commission or other regulatory organization for the
purpose of issuing any class of instruments in a public market; and
(d)
The ultimate or any intermediate controlling entity of the controlling entity produces
consolidated financial statements available for public use that comply with IPSASs.
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3.1.4 Scope of Consolidated Financial Statements
Paragraphs 21 and 21provide that Consolidated financial statements shall include all
controlled entities of the controlling entity, except those referred to in paragraph 21. A
controlled entity shall be excluded from consolidation when there is evidence that:
(a)
control is intended to be temporary because the controlled entity is acquired and held
exclusively with a view to its disposal within twelve months from acquisition,
(b)
management is actively seeking a buyer.
3.1.5 Regulatory and Purchase Power
IPSAS 6.37 distinguishes between regulatory power and purchase power. According to the
provision, Governments and their agencies have the power to regulate the behaviour of many
entities by use of their sovereign or legislative powers. Regulatory and purchase powers do
not constitute control for the purposes of financial reporting. To ensure that the financial
statements of public sector entities include only those resources that they control and can
benefit from, the meaning of control for the purposes of this Standard does not extend to:
(a)
The power of the legislature to establish the regulatory framework within which
entities operate, and to impose conditions or sanctions on their operations. Such
power does not constitute control by a public sector entity of the assets deployed by
these entities.
(b)
Entities that is economically dependent on a public sector entity. That is, where an
entity retains discretion as to whether it will take funding from, or do business with, a
public sector entity, that entity has the ultimate power to govern its own financial or
operating policies, and accordingly is not controlled by the public sector entity
3.1.6 Determining Whether Control Exists for Financial Reporting Purposes
Control is presumed to exist when at least one of the following power conditions and one of
the following benefit conditions exists, unless there is clear evidence of control being held by
another entity.
Power Conditions
(a)
The entity has, directly or indirectly through controlled entities, ownership of a
majority voting interest in the other entity.
(b)
The entity has the power, either granted by or exercised within existing legislation, to
appoint or remove a majority of the members of the board of directors or equivalent
governing body, and control of the other entity is by that board or by that body.
358
(c)
The entity has the power to cast, or regulate the casting of, a majority of the votes that
are likely to be cast at a general meeting of the other entity.
(d)
The entity has the power to cast the majority of votes at meetings of the board of
directors or equivalent governing body, and control of the other entity is by that board
or by that body.
Benefit Conditions
(a)
The entity has the power to dissolve the other entity and obtain a significant level of
the residual economic benefits or bear significant obligations. For example the benefit
condition may be met if an entity had responsibility for the residual liabilities of
another entity.
(b)
The entity has the power to extract distributions of assets from the other entity, and/or
may be liable for certain obligations of the other entity.
Paragraph 40 says that when one or more of the circumstances listed in paragraph 39 does not
exist, the following factors are likely, either individually or collectively, to be indicative of
the existence of control.
Power Indicators
(a)
The entity has the ability to veto operating and capital budgets of the other entity.
(b)
The entity has the ability to veto, overrule, or modify governing body decisions of the
other entity.
(c)
The entity has the ability to approve the hiring, reassignment, and removal of key
personnel of the other entity.
(d)
The mandate of the other entity is established and limited by legislation.
(e)
The entity holds a golden share1 (or equivalent) in the other entity that confers rights
to govern the financial and operating policies of that other entity.
Benefit Indicators
(a)
The entity holds direct or indirect title to the net assets/equity of the other entity, with
an ongoing right to access these.
(b)
The entity has a right to a significant level of the net assets/equity of the other entity
in the event of a liquidation, or in a distribution other than a liquidation.
(c)
The entity is able to direct the other entity to cooperate with it in achieving its
objectives.
(d)
The entity is exposed to the residual liabilities of the other entity.
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3.1.7 Accounting for Controlled Entities, Jointly Controlled Entities and Associates in
Separate Financial Statements
According to IPSAS 6.58, when separate financial statements are prepared, investments in
controlled entities, jointly controlled entities, and associates shall be accounted for:
(a)
Using the equity method as described in IPSAS 7;
(b)
At cost; or
(c)
As a financial instrument in accordance with IPSAS 29.
The same accounting shall be applied for each category of investments.
Disclosure
The disclosure provisions are contained in paragraphs 62 to 64. According to the provisions,
the following disclosures shall be made in consolidated financial statements:
(a)
A list of significant controlled entities;
(b)
The fact that a controlled entity is not consolidated in accordance with paragraph 21;
(c)
Summarized financial information of controlled entities, either individually or in
groups, that
are not consolidated, including the amounts of total assets, total
liabilities, revenues, and surplus or deficit;
(d)
The name of any controlled entity in which the controlling entity holds an ownership
interest and/or voting rights of 50% or less, together with an explanation of how
control exists;
(e)
The reasons why the ownership interest of more than 50% of the voting or potential
voting power of an investee does not constitute control;
(f)
The reporting date of the financial statements of a controlled entity when such
financial statements are used to prepare consolidated financial statements and are as
of a reporting date or for a period that is different from that of the controlling entity,
and the reason for using a different reporting date or period; and
(g)
The nature and extent of any significant restrictions (e.g., resulting from borrowing
arrangements or regulatory requirements) on the ability of controlled entities to
transfer funds to the controlling entity in the form of cash dividends, or similar
distributions, or to repay loans or advances.
3.1.8 Comparison with IAS 27
According to IPSAB (2014), IPSAS 6, Consolidated and Separate Financial Statements is
drawn primarily from IAS 27, Consolidated and Separate Financial Statements (2003). The
main differences between IPSAS 6 and IAS 27 are as follows:
360
1.
Commentary additional to that in IAS 27 has been included in IPSAS 6 to clarify the
applicability of the Standard to accounting by public sector entities.
2.
IPSAS 6 contains specific guidance on whether control exists in a public sector
context (paragraphs 28–41).
3.
IPSAS 6 uses different terminology, in certain instances, from IAS 27. The most
significant examples are the use of the terms “statement of financial performance,”
“net assets/equity,” “economic entity,” “controlling entity,” and “controlled entity” in
IPSAS 6. The equivalent terms
in IAS 27 are “income statement,” “equity,”
“group,” “parent,” and “subsidiary.”
4.
IPSAS 6 does not use the term “income,” which in IAS 27 has a broader meaning
than the term “revenue.”
5.
IPSAS 6 permits entities to use the equity method to account for controlled entities in
the separate financial statements of controlling entities.
6.
IPSAS 6 requires controlling entities to disclose a list of significant controlled entities
in consolidated financial statements (paragraph 62(a)). IAS 27 does not require this
disclosure. IPSAS 6 includes a transitional provision that permits entities to not
eliminate all balances and
transactions between entities within the economic entity
for reporting periods beginning on a date within three years following the date of first
adoption of this Standard (paragraphs 65–68). IAS 27 does not contain transitional
provisions.
7.
IPSAS 6 contains additional illustrative examples that reflect the public sector
context.
3.2
IPSAS 7—INVESTMENTS IN ASSOCIATES
The Standard provides guidance for accounting for investments in associates. An entity that
prepares and presents financial statements under the accrual basis of accounting is required to
apply this Standard in accounting by an investor for investments in associates where the
investment in the associate leads to the holding of an ownership interest in the form of a
shareholding or other formal equity structure. However, it does not apply to investments in
associates held by:
(a)
Venture capital organizations; or
(b)
Mutual funds, unit trusts and similar entities including investment linked insurance
funds;
This Standard applies to all public sector entities other than Government Business
Enterprises.
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3.2.1. Significant Definitions
An associate:
This is an entity, including an unincorporated entity such as a partnership, over which the
investor has significant influence, and that is neither a controlled entity nor an interest in a
joint venture.
The equity method
This is a method of accounting whereby the investment is initially recognized at cost, and
adjusted thereafter for the post-acquisition change in the investor’s share of net assets/equity
of the investee. The surplus or deficit of the investor includes the investor’s share of the
surplus or deficit of the investee.
Significant influence:
This is the power to participate in the financial and operating policy decisions of the investee
but is not control or joint control over those policies.
Significant Influence
The existence of significant influence by an investor is usually evidenced in one or more of
the following ways:
(a)
Representation on the board of directors or equivalent governing body of the investee;
(b)
Participation in policy-making processes, including participation in decisions about
dividends or similar distributions;
(c)
Material transactions between the investor and the investee;
(d)
Interchange of managerial personnel; or
(e)
Provision of essential technical information.
3.2.2 Equity Method
Under the equity method, the investment in an associate is initially recognized at cost, and the
carrying amount is increased or decreased to recognize the investor’s share of surplus or
deficit of the investee after the date of acquisition(para.17). Para.19, states that an investment
in an associate shall be accounted for using the equity method, except when:
(a)
There is evidence that the investment is acquired and held exclusively with a view to
its disposal within twelve months from acquisition and that management is actively
seeking a buyer;
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(b)
The exception in paragraph 16 of IPSAS 6, allowing a controlling entity that also has
an investment in an associate not to present consolidated financial statements, applies;
or
(c)
All of the following apply:
(i)
The investor is:
A wholly-owned controlled entity, and users of financial statements prepared
by applying the equity method are unlikely to exist or their information needs
are met by the controlling entity’s consolidated financial statements; or
A partially-owned controlled entity of another entity and its other owners,
including those not otherwise entitled to vote, have been informed
about, and do not object to, the investor not applying the equity method;
(ii)
The investor’s debt or equity instruments are not traded in a public market (a
domestic or foreign stock exchange or an over-the-counter market, including
local and regional markets);
(iii)
The investor did not file, nor is it in the process of filing, its financial
statements with a securities commission or other regulatory organization, for
the purpose of issuing any
(iv)
class of instruments in a public market; and
The ultimate or any intermediate controlling entity of the investor produces
consolidated financial statements available for public use that comply with
IPSASs.
3.2.3 Disclosure
IPSAS 7.43 requires the following disclosures:
(a)
The fair value of investments in associates for which there are published price
quotations;
(b)
Summarized financial information of associates, including the aggregated amounts of
assets, liabilities, revenues, and surplus or deficit;
(c)
The reasons why the presumption that an investor does not have significant influence
is overcome if the investor holds, directly or indirectly through controlled entities, less
than 20 percent of the voting or potential voting power of the investee but concludes
that it has significant influence;
(d)
The reasons why the presumption that an investor has significant influence is
overcome if the investor holds, directly or indirectly through controlled entities, 20
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percent or more of the voting power of the investee but concludes that it does not have
significant influence;
(e)
The reporting date of the financial statements of an associate, when such financial
statements are used in applying the equity method and are as of a reporting date or for
a period that is different from that of the investor, and the reason for using a different
reporting date or different period;
(f)
The nature and extent of any significant restrictions (e.g., resulting from borrowing
arrangements or regulatory requirements) on the ability of associates to transfer funds
to the investor in the form of cash dividends or similar distributions, or repayment of
loans or advances;
(g)
The unrecognized share of losses of an associate, both for the period and
cumulatively, if an investor has discontinued recognition of its share of losses of an
associate;
(h)
The fact that an associate is not accounted for using the equity method in accordance
with paragraph 19; and
(i)
Summarized financial information of associates, either individually or in groups, that
are not accounted for using the equity method, including the amounts of total assets,
total liabilities, revenues, and surpluses or deficits.
3.2.4 Comparison with IAS 28
IPSAS 7, Investments in Associates is drawn primarily from IAS 28, Investments in
Associates and includes an amendment made to IAS 28 as part of the Improvements to IFRSs
issued in May 2008. According to IPSAB, the main differences between
IPSAS 7 and IAS 28 are as follows:
1.
Commentary additional to that in IAS 28 has been included in IPSAS 7 to clarify the
applicability of the standards to accounting by public sector entities.
2
IPSAS 7 applies to all investments in associates where the investor holds an
ownership interest in the associate in the form of a shareholding or other formal
equity structure. IAS 28 does not contain similar ownership interest requirements.
However, it is unlikely that equity accounting could be applied unless the associate
had a formal or other reliably measurable equity structure.
3.
IPSAS 7 uses different terminology, in certain instances, from IAS 28. The most
significant examples are the use of the terms “statement of financial performance,”
and “net assets/equity” in IPSAS 7. The equivalent terms in IAS 28 are “income
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statement,” and “equity.” IPSAS 7 does not use the term “income,” which in IAS 28
has a broader meaning than the term “revenue.”
3.3
IPSAS 8—INTERESTS IN JOINT VENTURES
The standard is applied in accounting for interests in joint ventures and the reporting of joint
venture assets, liabilities, revenue and expenses in the financial statements of venturers and
investors, regardless of the structures or forms under which the joint venture activities take
place. However, it does not apply to venturers’ interests in jointly controlled entities held by:
(a)
Venture capital organizations; or
(b)
Mutual funds, unit trusts and similar entities including investment linked insurance
funds that
are measured at fair value, with changes in fair value recognized in surplus or
deficit in the period of the change in accordance with IPSAS 29, Financial Instruments:
Recognition and
Measurement.
A venturer with an interest in a jointly controlled entity is exempted from proportionate
consolidation equity method when it meets the following conditions:
(a)
There is evidence that the interest is acquired and held exclusively with a view to its
disposal within twelve months from acquisition and that management is actively
seeking a buyer;
(b)
The exception allowing a controlling entity that also has an interest in a jointly
controlled entity not to present consolidated financial statements is applicable; or
(c)
All of the following apply:
(i)
The venturer is: A wholly-owned controlled entity and users of financial
statements prepared by applying proportionate consolidation or the equity
method are unlikely to exist or (if they are) their information needs are met by
the controlling entity’s consolidated financial statements
(ii)
The venturer’s debt or equity instruments are not traded in a public market (a
domestic or foreign stock exchange or an over-the-counter market, including
local and regional markets);
(iii)
The venturer neither filed, nor is it in the process of filing, its financial
statements with a securities commission or other regulatory organization for
the purpose of issuing any class of instruments in a public market; and
(iv)
The ultimate or any intermediate controlling entity of the venturer produces
consolidated financial statements available for public use that comply with
IPSASs.
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3.3.1 Binding Arrangement
IPSAS 8.7 states that the existence of a binding arrangement distinguishes interests that
involve joint control from investments in associates in which the investor has significant
influence. A binding arrangement is usually in writing, and deals with such matters as:
1.
The activity, duration and reporting obligations of the joint venture;
2.
The appointment of the board of directors or equivalent governing body of the joint
venture and the voting rights of the venturers;
3.
Capital contributions by the venturers; and
4.
The sharing by the venturers of the output, revenue, expenses, surpluses or deficits, or
cash flows of the joint venture.
3.3.2 Jointly Controlled Operations
IPSAS 8.17 stated the operation of some joint ventures involves the use of the assets and
other resources of the venturers rather than the establishment of a corporation, partnership, or
other entity, or a financial structure that is separate from the venturers themselves. Each
venturer uses its own property, plant, and equipment and carries its own inventories. It also
incurs its own expenses and
liabilities and raises its own finances, which represent its own obligations. The joint venture
activities may be carried out by the venturer’s employees alongside the venturer’s similar
activities. In respect of its interests in jointly controlled operations, a venturer shall recognize
in its financial statements:
(a)
The assets that it controls and the liabilities that it incurs; and
(b)
The expenses that it incurs and its share of the revenue that items from the sale or
provision of goods or services by the joint venture.
3.3.3 Jointly Controlled Assets
Paragraph 22 of IPSA 8 noted that some joint ventures involve the joint control of, and often
the joint ownership by, the venturers of one or more assets contributed to, or acquired for the
purpose of, the joint venture and dedicated to the purposes of the joint venture. The assets are
used to obtain benefits for the venturers. Each venture may take a share of the output from the
assets, and each bears an agreed share of the expenses incurred. These joint ventures do not
involve the establishment of a corporation, partnership, or other entity, or a financial structure
that is separate from the venturers themselves. Each venturer has control over its share of
future economic benefits or service potential through its share of the jointly controlled asset.
Some activities in the public sector involve jointly controlled assets. For example, a local
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government may enter into an arrangement with a private sector corporation to construct a
toll road. The road provides the citizens with improved access between the local
government’s industrial estate and its port facilities. The road also provides the private sector
corporation with direct access between its manufacturing plant and the port. The agreement
between the local authority and the private sector corporation specifies each party’s share of
revenues and expenses associated with the toll road. Accordingly, each venturer derives
economic benefits or service potential from the jointly controlled asset, and bears an agreed
proportion of the costs of operating the road.
In respect of its interest in jointly controlled assets, a venturer recognizes in its financial
statements:
(a)
Its share of the jointly controlled assets, classified according to the nature of the
assets;
(b)
Any liabilities that it has incurred;
(c)
Its share of any liabilities incurred jointly with the other venturers in relation to the
joint venture;
(d)
Any revenue from the sale or use of its share of the output of the joint venture,
together with its share of any expenses incurred by the joint venture; and
(e)
Any expenses that it has incurred in respect of its interest in the joint venture.
For interest in jointly controlled assets, each venturer includes in its accounting records and
recognizes in its financial statements:
(a)
Its share of the jointly controlled assets, classified according to the nature of the assets
rather than as an investment. For example, a share of a jointly controlled road is
classified as
(b)
property, plant, and equipment;
Any liabilities that it has incurred, for example those incurred in financing its share of
the assets;
(c)
Its share of any liabilities incurred jointly with other venturers in relation to the joint
venture;
(d)
Any revenue from the sale or use of its share of the output of the joint venture,
together with its share of any expenses incurred by the joint venture; and
(e)
Any expenses that it has incurred in respect of its interest in the joint venture, for
example those related to financing the venturer’s interest in the assets and selling its
share of the output.
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3.3.4 Jointly Controlled Entities
The provisions for jointly controlled entities are contained in IPSAS 8.29. A jointly
controlled entity is a joint venture that involves the establishment of a corporation,
partnership or other entity in which each venturer has an interest. The entity operates in the
same way as other entities, except that a binding arrangement between the venturers
establishes joint control over the activity of the entity. A jointly controlled entity controls the
assets of the joint venture, incurs liabilities and expenses and earns revenue. It may enter into
contracts in its own name and raise finance for the purposes of the joint venture activity. Each
venturer is entitled to a share of the surpluses of the jointly controlled entity, although some
jointly controlled entities also involve a sharing of the output of the joint venture.
A common example of a jointly controlled entity is when two entities combine their activities
in a particular line of service delivery by transferring the relevant assets and liabilities into a
jointly controlled entity. Another example arises when an entity commences a business in a
foreign country in conjunction with a government or other agency in that country, by
establishing a separate entity that is jointly controlled by the entity and the government or
agency in the foreign country.
3.3.5 FINANCIAL STATEMENTS OF A VENTURER
Proportionate consolidation
A venturer recognizes its interest in a jointly controlled entity using one of the two reporting
formats for proportionate consolidation, irrespective of (a) whether it also has investments in
controlled entities, or (b) whether it describes its financial statements as consolidated
financial statements. The application of proportionate consolidation means that the statement
of financial position of the venturer includes its share of the assets that it controls jointly and
its share of the liabilities for which it is jointly responsible. The statement of financial
performance of the venturer includes its share of the revenue and expenses of the jointly
controlled entity. Different reporting formats may be used to give effect to proportionate
consolidation.
A venturer shall discontinue the use of proportionate consolidation from the date on which it
ceases to have joint control over a jointly controlled entity.
Equity Method
IPSAS 8.43 noted that as an alternative to proportionate consolidation a venturer shall
recognize its interest in a jointly controlled entity using the equity method.IPSAS 8 does not
recommend the use of the equity method because proportionate consolidation better reflects
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the substance and economic reality of a venturer’s interest in a jointly controlled entity, that is
to say, control over the venturer’s share of the future economic benefits or service potential.
Nevertheless, this Standard permits the use of the equity method, as an alternative treatment,
when recognizing interests in jointly controlled entities.
A venturer shall discontinue the use of the equity method from the date on which it ceases to
have joint control over, or have significant influence in, a jointly controlled entity.
3.3.6 Disclosure
They following are required to be disclosed by a venturer:
(a)
The aggregate amount of the following contingent liabilities, unless the possibility of
any outflow in settlement is remote, separately from the amount of other contingent
liabilities:
(i)
Any contingent liabilities that the venturer has incurred inrelation to its
interests in joint ventures, and its share in each of the contingent liabilities that
have been incurred jointly with other venturers;
(ii)
Its share of the contingent liabilities of the joint ventures themselves for which
it is contingently liable; and
(iii)
Those contingent liabilities that arise because the venturer is contingently
liable for the liabilities of the other venturers of a joint venture; and
(b)
A brief description of the following contingent assets and, wherepracticable, an
estimate of their financial effect, where an inflow ofeconomic benefits or service
potential is probable:
(i)
Any contingent assets of the venturer arising in relation to its interests in joint
ventures and its share in each of the contingent assets that have arisen jointly
with other venturers; and
(ii)
(c)
Its share of the contingent assets of the joint ventures themselves.
Any capital commitments of the venturer in relation to its interests in joint ventures
and its share in the capital commitments that have been incurred jointly with other
venturers; and
(d)
Its share of the capital commitments of the joint ventures themselves.
(e)
A listing and description of interests insignificant joint ventures and the proportion of
ownership interest held in jointly controlled entities
(f)
The method it uses to recognize its interests in jointly controlled entities.
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Self-Assessment Exercise
1.
What is a binding arrangement in joint ventures?
3.3.7 Comparison with IAS 31
According to IPSAB (2014), IPSAS 8, Interests in Joint Ventures is drawn primarily from
IAS 31, Interests in Joint Ventures. The main differences between IPSAS 8 and IAS 31 are:
1.
Commentary additional to that in IAS 31 has been included in IPSAS 8 to clarify the
applicability of the standards to accounting by public sector entities.
2.
IPSAS 8 uses different terminology, in certain instances, from IAS 31. The most
examples are the use of the terms “statement of financial performance,” and “net
assets/equity” in IPSAS 8. The equivalent terms in IAS 31 are “income statement,”
and “equity.”
3.
IPSAS 8 does not use the term “income,” which in IAS 31 has a broader meaning
than the term “revenue.”
4.
IPSAS 8 uses a different definition of “joint venture” from IAS 31. The term
“contractual arrangement” has been replaced by “binding arrangement.”
5
IPSAS 8 includes a transitional provision that permits entities that adopt proportionate
consolidation treatment to not eliminate all balances and transactions between
venturers, their controlled entities, and entities that they jointly control for reporting
periods beginning on a date within three years following the date of adopting accrual
accounting for the first time in accordance with IPSASs. IAS 31 does not contain
transitional provisions.
3.4
IPSAS 9—REVENUE FROM EXCHANGE TRANSACTIONS
The Standard prescribes the accounting treatment of revenue arising from exchange
transactions and events. The Standard is applicable in accounting for revenue arising from the
following exchange transactions and events:
(a)
The rendering of services;
(b)
The sale of goods; and
(c)
The use by others of entity assets yielding interest, royalties, and dividends or similar
distributions.
This Standard applies to all public sector entities other than Government Business
Enterprises. The Standard does not deal with revenues arising from:
(a)
Lease agreements (see IPSAS 13, Leases);
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(b)
Dividends or similar distributions arising from investments that are accounted for
under the equity method (see IPSAS 7, Investments in Associates);
(c)
Gains from the sale of property, plant, and equipment (which are dealt with in IPSAS
17, Property, Plant, and Equipment);
(d)
Insurance contracts within the scope of the relevant international or national
accounting standard dealing with insurance contracts;
(e)
Changes in the fair value of financial assets and financial liabilities or their disposal
(guidance on the recognition and measurement of financial instruments can be found
in IPSAS 29, Financial Instruments: Recognition and Measurement);
(f)
Changes in the value of other current assets;
(g)
Initial recognition, and from changes in the fair value of biological assets related to
agricultural activity (see IPSAS 27, Agriculture);
(g)
Initial recognition of agricultural produce (see IPSAS 27); and
(h)
The extraction of mineral ores.
3.4.1 Rendering of Services
According to IPSAS 9, when the outcome of a transaction involving the rendering of services
can be estimated reliably, revenue associated with the transaction shall be recognized by
reference to the stage of completion of the transaction at the reporting date. The outcome of a
transaction can be estimated reliably when all the following conditions are satisfied:
(a)
The amount of revenue can be measured reliably;
(b)
It is probable that the economic benefits or service potential associated with the
transaction will flow to the entity;
(c)
The stage of completion of the transaction at the reporting date can be measured
reliably; and
(d)
The costs incurred for the transaction and the costs to complete the transaction can be
measured reliably.
3.4.2 Sale of Goods
Revenue from the sale of goods shall be recognized when all the following conditions have
been satisfied:
(a)
The entity has transferred to the purchaser the significant risks and rewards of
ownership of the goods;
(b)
The entity retains neither continuing managerial involvement to the degree usually
associated with ownership nor effective control over the goods sold;
(c)
The amount of revenue can be measured reliably;
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(d)
It is probable that the economic benefits or service potential associated with the
transaction will flow to the entity; and
(e)
The costs incurred or to be incurred in respect of the transaction can be measured
reliably.
3.4.3 Interest, Royalties, and Dividends or Similar Distributions
Paragraph 33 stipulated that Revenue arising from the use by others of entity assets yielding
interest, royalties, and dividends or similar distributions shall be recognized using when:
(a)
It is probable that the economic benefits or service potential associated with the
transaction will flow to the entity; and
(b)
The amount of the revenue can be measured reliably.
The following accounting treatment is applicable:
(a)
Interest shall be recognized on a time proportion basis that takes into account the
effective yield on the asset;
(b)
Royalties shall be recognized as they are earned in accordance with the substance of
the relevant agreement; and
(c)
Dividends or similar distributions shall be recognized when the shareholder’s or the
entity’s right to receive payment is established.
3.4.4 Disclosure
The following are required to be disclosed:
(a)
The accounting policies adopted for the recognition of revenue, including the methods
adopted to determine the stage of completion of transactions involving the rendering
of services;
(b)
The amount of each significant category of revenue recognized during the period,
including revenue arising from:
(c)
(i)
The rendering of services;
(ii)
The sale of goods;
(iii)
Interest;
(iv)
Royalties; and
(v)
Dividends or similar distributions; and
The amount of revenue arising from exchanges of goods orservices included in each
significant category of revenue.
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3.4.5 Comparison with IAS 18
According to IPSASB (2014), IPSAS 9, Revenue from Exchange Transactions is drawn
primarily from IAS 18, Revenue. The main differences between IPSAS 9 and IAS 18 are as
follows:
1.
The title of IPSAS 9 differs from that of IAS 18, and this difference clarifies that
IPSAS 9 does not deal with revenue from non-exchange transactions.
2.
The definition of “revenue” adopted in IPSAS 9 is similar to the definition adopted in
IAS 18. The main difference is that the definition in IAS 18refers to ordinary
activities.
3
Commentary additional to that in IAS 18 has also been included in IPSAS 9 to clarify
the applicability of the standards to accounting by public sector entities.
4
IPSAS 9 uses different terminology, in certain instances, from IAS 18. The most
significant example is the use of the term “net assets/equity” in IPSAS 9. The
equivalent term in IAS 18 is “equity.”
3.5
IPSAS
10—FINANCIAL
REPORTING
IN
HYPERINFLATIONARY
ECONOMIES
The Standard prescribes the accounting treatment in the consolidated and individual financial
statements of an entity whose functional currency is the currency of a hyperinflationary
economy. The Standard also specifies the accounting treatment where the economy ceases to
be hyperinflationary.
The Standard requires an entity that prepares and presents financial statements under the
accrual basis of accounting to apply this Standard to the primary financial statements,
including the consolidated financial statements, of any entity whose functional currency is the
currency of a hyperinflationary economy. This Standard applies to all public sector entities
other than Government Business Enterprises.
3.5.1 INDICATORS OF HYPERINFLATION
According to the Standard, Hyperinflation is indicated by characteristics of the economic
environment
of a country which include, but are not limited to, the following:
(a)
The general population prefers to keep its wealth in non-monetary assets or in a
relatively stable foreign currency. Amounts of local currency held are immediately
invested to maintain purchasing power.
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(b)
The general population regards monetary amounts, not in terms of the local currency,
but in terms of a relatively stable foreign currency. Prices may be quoted in that
currency.
(c)
Sales and purchases on credit take place at prices that compensate for the expected
loss of purchasing power during the credit period, even if the period is short.
(d)
Interest rates, wages, and prices are linked to a price index
(e)
The cumulative inflation rate over three years is approaching, or exceeds, 100%.
3.5.2 The Restatement of Financial Statements
Statement of Financial Position
Paragraphs 14-26 prescribe the Re-Statement of financial position amounts not already
expressed in terms of the measuring unit current at the reporting date are restated by applying
a general price index.
1.
Monetary items are not restated, because they are already expressed in terms of the
monetary unit current at the reporting date. Monetary items are money held and assets
and liabilities to be received or paid in fixed or determinable amounts of money.
2.
Assets and liabilities linked by agreement to changes in prices, such as index-linked
bonds and loans, are adjusted in accordance with the agreement in order to ascertain
the amount outstanding at the reporting date. These items are carried at this adjusted
amount in the restated statement of financial position.
3.
All other assets and liabilities are non-monetary. Some non-monetary items are
carried at amounts current at the reporting date, such as net realizable value and fair
value, so they are not restated. All other non-monetary assets and liabilities are
restated.
4.
Most non-monetary items are carried at cost or cost less depreciation; hence they are
expressed at amounts current at their date of acquisition. The restated cost, or cost less
depreciation, of each item is determined by applying to its historical cost and
accumulated depreciation the change in a general price index from the date of
acquisition to the reporting date.
5.
Where detailed records of the acquisition dates of items of property, plant, and
equipment are not be available or able to be estimated, it may be necessary, in the first
period of application of this Standard, to use an independent professional assessment
of the value of the items as the basis for their restatement.
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6.
Where a general price index is not be available for the periods for which the
restatement of property, plant, and equipment is required by this Standard, it may be
necessary to use an
estimate based, for example, on the movements in the exchange
rate between the functional currency and a relatively stable foreign currency.
3.5.3 Statement of Financial Performance
The Standard requires that all items in the statement of financial performance are expressed
in terms of the measuring unit current at the reporting date. Therefore all amounts need to be
restated by applying the change in the general price index from the dates when the items of
revenue and expenses were initially recorded.
3.5.4 Gain or Loss on Net Monetary Position
The gain or loss on the net monetary position is included in the statement of financial
performance. The adjustment to those assets and liabilities linked by agreement to changes in
prices made in accordance with paragraph 16 is offset against the gain or loss on net
monetary position. Other items in the statement of financial performance, such as interest
revenue and expense, and foreign exchange differences related to invested or borrowed funds,
are also associated with the net monetary position. Although such items are separately
disclosed, it may be helpful if they are presented together with the gain or loss on net
monetary position in the statement of financial performance.
3.5.5 Cash Flow Statement
The Standard requires that all items in the cash flow statement are expressed in terms of the
measuring unit current at the reporting date.
3.5.6 Selection and Use of the General Price Index
The restatement of financial statements in accordance with this Standard requires the use of a
general price index that reflects changes in general purchasing power. It is preferable that all
entities that report in the currency of the same economy use the same index.
3.5.7 Economies ceasing to be Hyperinflationary
The Standard requires that when an economy ceases to be hyperinflationary and an entity
discontinues the preparation and presentation of financial statements prepared in accordance
with this Standard, it shall treat the amounts expressed in the measuring unit current at the
end of the previous reporting period as the basis for the carrying amounts in its subsequent
financial statements.
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3.5.8 Disclosures
Paragraph 36 of the Standard requires that the following disclosures shall be made:
(a)
The fact that the financial statements and the corresponding figures for previous
periods have been restated for the changes in the general purchasing power of the
functional currency and,
as a result, are stated in terms of the measuring unit current at the reporting date; and
(b)
The identity and level of the price index at the reporting date, and the movement in
the index during the current and the previous reporting periods.
3.5.9 Comparison with IAS 29
According to IPSAB (2014), IPSAS 10, Financial Reporting in Hyperinflationary Economies
is drawn primarily from IAS 29, Financial Reporting in Hyperinflationary Economies and
includes amendments made to IAS 29 as part of the Improvements to IFRSs issued in May
2008. According to the IPSASB, the main differences between IPSAS 10 and IAS 29 are as
follows:
1.
Commentary additional to that in IAS 29 has been included in IPSAS 10 to clarify the
applicability of the standards to accounting by public sector entities.
2.
IPSAS 10 uses different terminology, in certain instances, from IAS 29. The most
significant examples are the use of the terms “revenue,” “statement of financial
performance,” and “net assets/equity” in IPSAS 10. The equivalent terms in IAS 29
are “income,” “income statement,”
3.
and “equity.”
IAS 29 contains guidance on the restatement of current cost financial statements.
IPSAS 10 does not include this guidance.
4.
IPSAS 10 contains an illustrated example that illustrates the process of the restating of
financial statements, using an indirect method, of an entity reporting in the currency
of a hyperinflationary economy.
3.6
IPSAS 11—CONSTRUCTION CONTRACTS
IPSAS 11 prescribes the accounting treatment of costs and revenue associated with
construction contracts. Because of the nature of the activity undertaken in construction
contracts, the date at which the contract activity is entered into and the date when the activity
is completed usually fall into different reporting periods. In many jurisdictions, construction
contracts entered into by public sector entities will not specify an amount of contract revenue.
Rather, funding to support the construction activity will be provided by an appropriation or
similar allocation of general government revenue, or by aid or grant funds. In these cases, the
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primary issue in accounting for construction contracts is the (a) allocation of construction
costs to the reporting period in which the construction work is performed, and (b) the
recognition of related expenses.
For the purposes of this Standard, construction contracts include: (a) Contracts for the
rendering of services that are directly related to the construction of the asset, for example,
those for the services of project managers and architects; and (b) Contracts for the destruction
or restoration of assets, and the restoration of the environment following the demolition of
assets. The standard applies to contractors that prepare and present financial statements under
the accrual basis of accounting shall apply this Standard in accounting for construction
contracts. The Standard applies to all public sector entities other than Government Business
Enterprises.
3.6.1 SIGNIFICANT DEFINITIONS
Construction contract:
This a is a contract, or a similar binding arrangement, specifically negotiated for the
construction of an asset or a combination of assets that are closely interrelated or
interdependent in terms of their design, technology, and function or their ultimate purpose or
use.
Cost plus or cost-based contract
This is a construction contract in which the contractor is reimbursed for allowable or
otherwise defined costs and, in the case of a commercially based contract, an additional
percentage of these costs or a fixed fee, if any.
Fixed price contract:
This is a construction contract in which the contractor agrees to a fixed contract price, or a
fixed rate per unit of output, which in some cases is subject to cost escalation clauses.
3.6.2 Combining and Segmenting Construction Contracts
The requirements of this Standard are usually applied separately to each construction
contract. However, in certain circumstances, it is necessary to apply the Standard to the
separately identifiable components of a single contract, or to a group of contracts together, in
order to reflect the substance
of a contract or a group of contracts. Paragraphs 13 to 15 of the standard identify the
accounting treatments under various possible circumstances.
377
A contract covering a number of assets
When a contract covers a number of assets the construction of each asset shall be treated as a
separate construction contract when:
(a)
Separate proposals have been submitted for each asset;
(b)
Each asset has been subject to separate negotiation, and the contractor and customer
have been able to accept or reject that part of the contract relating to each asset; and
(c)
The costs and revenues of each asset can be identified.
A group of contracts whether with a single or Several customers
When there is a group of contracts with a single customer or several customers it shall be
treated as a single construction contract when:
(a)
The group of contracts is negotiated as a single package;
(b)
The contracts are so closely interrelated that they are, in effect, part of a single project
with an overall margin, if any; and
(c)
The contracts are performed concurrently or in a continuous sequence.
Contract with provision for the construction of an additional asset
The construction of the additional asset shall be treated as a separate construction contract
when:
(a)
The asset differs significantly in design, technology, or function from the asset or
assets covered by the original contract; or
(b)
The price of the asset is negotiated without regard to the original contract price.
,
3.6.3 Contract Revenue
Paragraph 16 of the Standard provides that Contract revenue shall comprise:
(a)
The initial amount of revenue agreed in the contract; and
(b)
Variations in contract work, claims, and incentive payments tothe extent that:
(i)
It is probable that they will result in revenue; and
(ii)
They are capable of being reliably measured.
3.6.4 CONTRACT COSTS
Paragraph 23 of the standard provides that contract costs shall comprise:
(a)
Costs that relate directly to the specific contract;
(b)
Costs that are attributable to contract activity in general, and can be allocated to the
contract on a systematic and rational basis; and
378
(c)
Such other costs as are specifically chargeable to the customer under the terms of the
contract.
Costs that relate directly to a specific contract:
Costs that relate directly to a specific contract include (para. 24):
(a)
Site labor costs, including site supervision;
(b)
Costs of materials used in construction;
(c)
Depreciation of plant and equipment used on the contract;
(d)
Costs of moving plant, equipment, and materials to and from the contract site;
(e)
Costs of hiring plant and equipment;
(f)
Costs of design and technical assistance that are directly related to the contract;
(g)
The estimated costs of rectification and guarantee work, including expected warranty
costs; and
(h)
Claims from third parties.
Costs that may be attributable to contract activity in general
Costs that may be attributable to contract activity in general and can be allocated to specific
contracts include:
(a)
Insurance;
(b)
Costs of design that are not directly related to a specific contract; and
(c)
Construction overheads.
Such costs are allocated using methods that (a) are systematic and rational, and (b) are
applied consistently to all costs having similar characteristics. The allocation is based on the
normal level of construction activity.
Costs that cannot be attributed to contract activity
Under paragraph 28, costs that cannot be attributed to contract activity or cannot be allocated
to a contract are excluded from the costs of a construction contract. Such costs include:
(a)
General administration costs for which reimbursement is not specified in the contract;
(b)
Selling costs;
(c)
Research and development costs for which reimbursement is not specified in the
contract; and
(d)
Depreciation of idle plant and equipment that is not used on a particular contract.
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3.5.5 Recognition of Contract Revenue and Expenses
IPSAS 11.30 provides that when the outcome of a construction contract can be estimated
reliably, contract revenue and contract costs associated with the construction contract shall be
recognized as revenue and expenses respectively by reference to the stage of completion of
the contract activity at the reporting date. An expected deficit on a construction contract is to
be recognized as an expense immediately.
3.6.6 FIXED PRICE CONTRACTS
The outcome of a construction whose price is fixed contract can be estimated reliably when
all the following conditions are satisfied:
(a)
Total contract revenue, if any, can be measured reliably;
(b)
It is probable that the economic benefits or service potential associated with the
contract will flow to the entity;
(c)
Both the contract costs to complete the contract and the stage of contract completion
at the reporting date can be measured reliably; and
(d)
The contract costs attributable to the contract can be clearly identified and measured
reliably, so that actual contract costs incurred can be compared with prior estimates.
3.6.7 COST PLUS OR COST-BASED CONTRACT
In the case of a cost plus or cost-based contract, paragraph 32 asserted that the outcome of a
construction contract can be estimated reliably when all the following conditions are
satisfied:
(a)
It is probable that the economic benefits or service potential associated with the
contract will flow to the entity; and
(b)
The contract costs attributable to the contract, whether or not specifically
reimbursable, can be clearly identified and measured reliably.
3.6.8 PERCENTAGE OF COMPLETION METHOD
The recognition of revenue and expenses by reference to the stage of completion of a contract
is often referred to as the percentage of completion method. Under this method, contract
revenue is matched with the contract costs incurred in reaching the stage of completion,
resulting in the reporting of revenue, expenses, and surplus/deficit that can be attributed to the
proportion of work completed. This method provides useful information on the extent of
contract activity and performance during a period.
380
Under the percentage of completion method, contract revenue is recognized as revenue in the
statement of financial performance in the reporting periods in which the work is performed.
Contract costs are usually recognized as an expense in the statement of financial performance
in the reporting periods in which the work to which they relate is performed. However, where
it is intended at inception of the contract that contract costs are to be fully recovered from the
parties to the construction contract, any expected excess of total contract costs over total
contract revenue for the contract is recognized as an expense immediately.
The stage of completion of a contract may be determined in a variety of ways. The entity uses
the method that measures reliably the work performed. Depending on the nature of the
contract, the methods may include:
(a)
The proportion that contract costs incurred for work performed to date bear to the
estimated total contract costs;
(b)
Surveys of work performed; or
(c)
Completion of a physical proportion of the contract work.
Progress payments and advances received from customers often do not reflect the work
performed. By paragraph 39, when the stage of completion is determined by reference to the
contract costs incurred to date, only those contract costs that reflect work performed are
included in costs incurred to date.
When the outcome of a construction contract cannot be estimated reliably:
(a)
Revenue shall be recognized only to the extent of contract costs incurred that it is
probable will be recoverable; and
(b)
Contract costs shall be recognized as an expense in the period in which they are
incurred.
3.6.9 Changes in Estimates
The percentage of completion method is applied on a cumulative basis in each reporting
period to the current estimates of contract revenue and contract costs. Therefore, the effect of
a change in the estimate of contract revenue or contract costs, or the effect of a change in the
estimate of the outcome of a contract, is accounted for as a change in accounting estimate
(see IPSAS 3, Accounting Policies, Changes in Accounting Estimates and Errors.) The
changed estimates are used in the determination of the amount of revenue and expenses
recognized in the statement of financial performance in the period in which the change is
made and in subsequent periods.
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3.6.10 Disclosure
Paragraph 50 of the Standard provides that an entity shall disclose:
(a)
The amount of contract revenue recognized as revenue in the period;
(b)
The methods used to determine the contract revenue recognized in the period; and
(c)
The methods used to determine the stage of completion of contracts in progress.:
(d)
The aggregate amount of costs incurred and recognized surpluses (less recognized
deficits) to date;
(e)
The amount of advances received; and
(f)
The amount of retentions.
(g)
The gross amount due from customers for contract work as an asset; and
(h)
The gross amount due to customers for contract work as a liability.
3.6.11 COMPARISON WITH IAS 11
According to IPSAB (2014), IPSAS 11, Construction Contracts is drawn primarily from IAS
11, Construction Contracts. The main differences between IPSAS 11 and IAS 11 are as
follows:
1
Commentary additional to that in IAS 11 has been included in IPSAS 11 to clarify the
applicability of the standards to accounting by public sector entities.
2
IPSAS 11 uses different terminology, in certain instances, from IAS 11. The most
significant examples are the use of the terms “revenue,” and “statement of financial
performance” in IPSAS 11. The equivalent terms in IAS 11 are “income,” and
“income statement.”
3.
IPSAS 11 includes binding arrangements that do not take the form of a legal contract
within the scope of the Standard.
4.
IPSAS 11 includes cost-based and non-commercial contracts within the scope of the
Standard.
5.
IPSAS 11 makes it clear that the requirement to recognize an expected deficit on a
contract immediately it becomes probable that contract costs will exceed total contract
revenues applies only to contracts in which it is intended at inception of the contract
that contract costs are to be fully recovered from the parties to that contract.
6.
IPSAS 11 includes additional examples to illustrate the application of the Standard to
non-commercial construction contracts.
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Self-Assessment Exercise
1
State the items that are required to be disclosed for construction contracts.
4.0
SUMMARY
This unit discussed IPSAS 6 to 11. It discussed the IPSAS provisions for;
the preparation of consolidated and separate financial statements,
the accounting treatment of Investments in associates,
the accounting treatment of interests in joint ventures,
the revenue from exchange transactions,
the provisions of IPSAS on financial reporting in hyperinflationary economies and
construction contracts.
5.0
CONCLUSION
In this unit, you were taught IPSAS 6 – 11. We will look at more IPSAS provisions in the
next unit.
6.0
TUTOR MARKED ASSIGNMENT
1.
How do you determine whether Control Exists for Financial Reporting Purposes?
2
What are the disclosures to be made in consolidated financial statements when
accounting for Controlled Entities.
3
What are the indicators of hyperinflation for financial reporting purposes? IPSAS 8—
Interests in joint ventures
7.0
REFERENCES/ FURTHER READING
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
IPSASB (2016) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume II, New York: IFAC
IPSASB (2014) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume I, New York: IFAC
Ogiedu, K.O. (2016) Lecture notes on Public Sector Accounting and Finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government Accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
383
UNIT 4
INTERNATIONAL PUBLIC SECTOR ACCOUNTING STANDARDS
(IPSAS) 12 TO 17
CONTENT
1.0
INTRODUCTION
2.0
OBJECTIVES
3.0
MAIN CONTENT
3.1
3.2
3.3
IPSAS 12—Inventories
3.1.1
Meaning of inventories
3.1.2
Costs excluded from the cost of inventories
3.1.3
Measurement of inventories
3.1.4
Costs of conversion
3.1.5
Cost of inventories of a service provider
3.1.6
Cost formula
3.1.7
Disclosure
3.1.8
Comparison with IAS 2
IPSAS 13—Leases
3.2.1
Significant definitions
3.2.2
Classification of leases
3.2.3
Characteristics of a finance lease
3.2.4
Leases and other contracts
3.2.5
Leases in the financial statements of lessees
3.2.6
Leases in the financial statements of lessors
3.2.7
Sales and Leaseback Transactions
3.2.8
Comparison with IAS 17
IPSAS 14—Events after the reporting date
3.3.1
Events after the reporting date
3.3.2
Adjusting events after the reporting date
3.3.3
Non-adjusting events after the reporting date
3.3.4
Dividends or similar distributions
3.3.5
Disclosure of non-adjusting events after the reporting date
3.3.6
Non-adjusting event requiring disclosure
3.3.7
Comparison with IAS 10
3.4
IPSAS 15 Financial instruments: disclosure and presentation
3.5
IPSAS 16—Investment property
384
3.5.1
Significant definitions
3.5.2
Examples of investment property
3.5.3
Examples of items that are not investment property
3.5.4
Recognition
3.5.5
Measurement at Recognition
3.5.6
Measurement After Recognised of Investment Property
3.5.7
Transfers
3.5.8
Fair Value Model
3.5.9
Disposals
3.5.10 Disclosure : Fair value and cost model
3.5.11 Disclosure : Fair value model
3.5.12 Disclosure: Cost model
3.5.13 Comparison with IAS 40
3.6
IPSAS 17—Property, plant, and equipment
3.6.1
Heritage assets
3.6.2
Significant definitions
3.6.3
Measurement after Recognition
3.6.4
Cost Model
3.6.5
Revaluation Model
3.6.6
Depreciation
3.6.7
Disclosure
3.6.8
Comparison with IAS 16
4.0
SUMMARY AND CONCLUSION
5.0
TUTOR MARKED ASSIGNMENT
6.0
REFERENCES/ FURTHER READING
1.0
INTRODUCTION
In this unit, you will be introduced to IPSAS 12, 13, 14, 15, 16, and 17 which deal with
inventories, leases, investments as well as property, plant and equipment.
2.0
OBJECTIVES
After studying this unit, you should be able to:
1
Calculate the cost different types of inventories
2
Carry out a classification of leases and account for them in financial statements
385
3
Report events after the reporting date
4
Present and disclose financial instruments in financial statements
5
Account for investment property
6
Account for property, plant, and equipment
3.0
MAIN CONTENT
3.1
IPSAS 12—INVENTORIES
The Standard prescribes the accounting treatment for inventories. A primary issue in
accounting for inventories is the amount of cost to be recognized as an asset and carried
forward until the related revenues are recognized. This Standard provides guidance on the
determination of cost and its subsequent recognition as an expense, including any write-down
to net realizable value. It also provides guidance on the cost formulas that are used to assign
costs to inventories.
The Standard applies to all entities that prepare and present financial statements under the
accrual basis of accounting with the following exceptions:
(a)
Work-in-progress arising under construction contracts, including directly related
service contracts (see IPSAS 11, Construction Contracts);
(b)
Financial instruments (see IPSAS 28, Financial Instruments: Presentation and IPSAS
29, Financial Instruments: Recognition and Measurement);
(c)
Biological assets related to agricultural activity and agricultural produce at the point
of harvest (see IPSAS 27, Agriculture); and(d) Work-in-progress of services to be
provided for no or nominal consideration directly in return from the recipients.
3.1.1 MEANING OF INVENTORIES
IPSAS 12.9 provides that Inventories are assets which are;
(a)
In the form of materials or supplies to be consumed in the production process;
(b)
In the form of materials or supplies to be consumed or distributed in the rendering of
services;
(c)
Held for sale or distribution in the ordinary course of operations; or
(d)
In the process of production for sale or distribution.
IPSAS 12.12 provides that Inventories in the public sector may include:
(a)
Ammunition;
(b)
Consumable stores;
(c)
Maintenance materials;
386
(d)
Spare parts for plant and equipment, other than those dealt with in standards on
Property, Plant and Equipment;
(e)
Strategic stockpiles (for example, energy reserves);
(f)
Stocks of unissued currency;
(g)
Postal service supplies held for sale (for example, stamps);
(h)
Work-in-progress, including:
(i)
Educational/training course materials; and
(ii)
Client services (for example, auditing services), where those services are sold
at arm’s length prices; and
(i)
Land/property held for sale.
3.1.2 COSTS EXCLUDED FROM THE COST OF INVENTORIES
Under IPSAS 12.25, costs excluded from the cost of inventories and recognized as expenses
in the period in which they are incurred are:
(a)
Abnormal amounts of wasted materials, labour, or other production costs;
(b)
Storage costs, unless those costs are necessary in the production process before a
further production stage;
(c)
Administrative overheads that do not contribute to bringing inventories to their
present location and condition; and
(d)
Selling costs.
3.1.3 MEASUREMENT OF INVENTORIES
Inventories should be measured at the lower of cost and net realizable value, except where
IPSAS 12.12 applies. Inventories should be measured at the lower of cost and current
replacement cost where they are held for:
(a)
Distribution at no charge or nominal charge;
(b)
Consumption in the production process of goods to be distributed at no charge or for a
nominal charge in line with IPSAS 12.17.
Note that the cost of inventories comprises:
(a)
All costs of purchase;
(b)
Costs of conversion; and
(c)
Other costs incurred in bringing the inventories to their present location and state
(IPSAS 12.18).
387
The costs of purchase of inventories comprise:
(a)
The purchase price;
(b)
Import duties and other taxes;
(c)
Transport, handling and other costs directly attributable to the acquisition of finished
goods, materials and supplies.
Trade discounts, rebates and other similar items are deducted in determining the costs of
purchase;
The costs of conversion of inventories in accordance with IPSAS 12.20 include full
production-related costs.
3.1.4 COSTS OF CONVERSION
The costs of conversion of inventories include costs directly related to the units of
production, such as direct labour, a systematic allocation of fixed and variable production
overheads that are incurred in converting materials to finished goods.
Fixed production overheads are those indirect costs of production that remain relatively
constant regardless of the volume of production. Examples of such costs are depreciation and
maintenance of factory buildings and equipment, and the cost of factory management and
administration.
Variable production overheads are those indirect costs of production that vary directly, or
nearly directly with the volume of production, such as indirect materials and indirect labour.
Other costs included in the costs of inventories only to the extent that they are incurred in
bringing inventories to their present location and condition.
3.1.5 COST OF INVENTORIES OF A SERVICE PROVIDER
The cost of inventories of a service provider consists primarily of the labour and other costs
of personnel directly engaged in providing the service, including supervisory personnel and
attributable overheads. The cost of labour not engaged in providing the service are not
included. Labour and other costs relating to sales and general administrative personnel are not
included but are recognized as expenses in the period in which they are incurred.
3.1.6 COST FORMULA
Flowing from the various provisions of the Standard, the formula for arriving at the costs of
conversion of inventories is:
388
Costs of conversion
=
Direct costs + fixed production overheads + variable
production overheads + other costs
Under IPSAS 12.28, an entity should use the same cost formula for all inventories having
similar nature and use to the entity. For inventories with different nature or use, different cost
formulas may be justified. A difference in geographical location of inventories (and in
respective tax rules), by itself, is not sufficient to justify the use of different cost formulas.
The cost of inventories, other than those dealt with in IPSAS 12.25, should be assigned by
using the first-in, first-out (FIFO) or weighted average cost formulas. The FIFO formula
assumes that the items of inventory are sold on first-come, first-serve basis. Consequently,
the items remaining in inventory at the end of the period are those most recently purchased or
produced. The weighted-average cost formula make for the cost of each item determined by
adding the purchase cost of a given item at the beginning of a period to the purchase cost of
the item at the end of a given period and divide by two to give a weighted average cost.
However, such average can be calculated on periodic basis, or as each additional shipment is
received, depending upon the circumstances of the entity.
3.1.7 DISCLOSURE
Under IPSAS 12.47, the financial statements shall disclose:
(a)
The accounting policies adopted in measuring inventories, including the cost formula
used;
(b)
The total carrying amount of inventories and the carrying amount in classifications
appropriate to the entity;
(c)
The carrying amount of inventories carried at fair value less costs to sell;
(d)
The amount of inventories recognized as an expense during the period;
(e)
The amount of any write-down of inventories recognized as an expense in the period
in accordance with paragraph 42;
(f)
The amount of any reversal of any write-down that is recognized in the statement of
financial performance in the period in accordance with paragraph 42;
(g)
The circumstances or events that led to the reversal of a write-down of inventories in
accordance with paragraph 42; and
(h)
The carrying amount of inventories pledged as security for liabilities.
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3.1.8 COMPARISON WITH IAS 2
According to IPSAB (2014), IPSAS 12, Inventories is drawn primarily from IAS 2,
Inventories (revised 2003).The main differences between IPSAS 12 and IAS 2 are as follows:
1.
IPSAS 12 uses a different definition from IAS 2; the difference recognizes that in the
public sector some inventories are distributed at no charge or fora nominal charge.
2.
IPSAS 12 clarifies that work-in-progress of services that are to be distributed for no or
nominal consideration directly in return from the recipients is excluded from the
scope of the Standard.
3.
A definition of current replacement cost, which is additional to the definitions in IAS
2, has been included in IPSAS 12.
4
IPSAS 12 requires that where inventories are acquired through a non-exchange
transaction, their cost is their fair value as at the date of acquisition.
5
IPSAS 12 requires that where inventories are provided at no charge or for a nominal
charge, they are to be valued at the lower of cost and current replacement cost.
6.
Commentary additional to that in IAS 2 has been included in IPSAS 12 to clarify the
applicability of the standards to accounting by public sector entities.
7
IPSAS 12 uses different terminology, in certain instances, from IAS 2. The most
significant example is the use of the terms “statement of financial performance” in
IPSAS 12. The equivalent term in IAS 2 is “income statement.”
8
IPSAS 12 does not use the term “income,” which in IAS 2 has a broader meaning
than the term “revenue.”
3.2
IPSAS 13—LEASES
IPSAS 13 prescribes for lessees and lessors, the appropriate accounting policies and
disclosures to apply in relation to finance and operating leases. The Standard applies to all
entities that prepares and presents financial statements under the accrual basis of accounting.
The Standard, however, excludes:
(a)
Leases to explore for or use minerals, oil, natural gas, and similar non-regenerative
resources;
(b)
Licensing agreements for such items as motion picture films, video recordings, plays,
manuscripts, patents, and copyrights.
(c)
Property held by lessees that is accounted for as investment property (see IPSAS 16,
Investment Property);
(d)
Investment property provided by lessors under operating leases(see IPSAS 16);
390
(e)
Biological assets held by lessees under finance leases (see IPSAS 27, Agriculture);
(f)
Biological assets provided by lessors under operating leases (see IPSAS 27).
3.2.1 SIGNIFICANT DEFINITIONS
The following terms: are used in this Standard with the meanings specified:
The commencement of the lease
The date from which the lessee is entitled to exercise its right to use the leased asset. It is the
date of initial recognition of the lease (i.e., the recognition of the assets, liabilities, revenue,
or expenses resulting from the lease, as appropriate).
Contingent rent
This refers to that portion of the lease payments that is not fixed in amount, but is based on
the future amount of a factor that changes other than with the passage of time (e.g.,
percentage of future sales, amount of future use, future price indices, future market rates of
interest).
Economic life:
This is either:
(a) The period over which an asset is expected to yield economic benefits or service potential
to one or more users; or
(b)
The number of production or similar units expected to be obtained from the asset by
one or more users.
A finance lease:
This is a lease that transfers substantially all the risks and rewards incidental to ownership of
an asset. Title may or may not eventually be transferred.
Gross investment in the lease:
This is the aggregate of:
(a)
The minimum lease payments receivable by the lessor under a finance lease; and
(b)
Any unguaranteed residual value accruing to the lessor.
Guaranteed residual value:
This is defined as:
(a)
For a lessee, that part of the residual value that is guaranteed by the lessee or by a
party related to the lessee (the amount of the guarantee being the maximum amount
that could, in any event, become payable); and
391
(b)
For a lessor, that part of the residual value that is guaranteed by the lessee, or by a
third party unrelated to the lessor, that is financially capable of discharging the
obligations under the guarantee.
The inception of the lease:
This is the earlier of the date of the lease agreement and the date of commitment by the
parties to the principal provisions of the lease. As at this date:
(a)
A lease is classified as either an operating or a finance lease; and
(b)
In the case of a finance lease, the amounts to be recognized at the commencement of
the lease term are determined.
The interest rate implicit in the lease:
This is the discount rate that, at the inception of the lease, causes the aggregate present value
of:
(a)
The minimum lease payments; and
(b)
The unguaranteed residual value to be equal to the sum of; (i) the fair value of the
leased asset, and (ii)any initial direct costs of the lessor.
A lease:
This is an agreement whereby the lessor conveys to the lessee, in return for a payment or
series of payments, the right to use an asset for an agreed period of time.
The lease term
This is the non-cancellable period for which the lessee has contracted to lease the asset,
together with any further terms for which the lessee has the option to continue to lease the
asset, with or without further payment, when at the inception of the lease it is reasonably
certain that the lessee will exercise the option.
The lessee’s incremental borrowing rate of interest
This is the rate of interest the lessee would have to pay on a similar lease or, if that is not
determinable, the rate that, at the inception of the lease, the lessee would incur to borrow over
a similar term, and with a similar security, the funds necessary to purchase the asset.
Minimum lease payments
These are the payments over the lease term that the lessee is, or can be, required to make,
excluding contingent rent, costs for services and, where appropriate, taxes to be paid by and
reimbursed to the lessor, together with:
(a)
For a lessee, any amounts guaranteed by the lessee or by a party related to the lessee;
or
(b)
For a lessor, any residual value guaranteed to the lessor by:
392
(i)
The lessee;
(ii)
A party related to the lessee; or
(iii)
An independent third party unrelated to the lessor that is financially capable of
discharging the obligations under the guarantee.
Net investment in the lease
This is the gross investment in the lease discounted at the interest rate implicit in the lease.
A non-cancellable lease:
This is a lease that is cancellable only:
(a)
Upon the occurrence of some remote contingency;
(b)
With the permission of the lessor;
(c)
If the lessee enters into a new lease for the same or an equivalent asset with the same
lessor; or
(d)
Upon payment by the lessee of such an additional amount that, at inception of the
lease, continuation of the lease is reasonably certain.
Operating lease:
This is a lease other than a finance lease.
Unearned finance revenue:
This is the difference between:
(a)
The gross investment in the lease; and
(b)
The net investment in the lease.
Unguaranteed residual value:
This is that portion of the residual value of the leased asset, the realization of which by the
lessor is not assured or is guaranteed solely by a party related to the lessor.
Useful life:
This is the estimated remaining period, from the commencement of the lease term, without
limitation by the lease term, over which the economic benefits or service potential embodied
in the asset are expected to be consumed by the entity.
3.2.2 CLASSIFICATION OF LEASES
The classification of leases adopted in the Standard is based on the extent to which risks and
rewards incidental to ownership of a leased asset lie with the lessor or the lessee. There are
two types of lease: Finance lease and operating lease. Under IPSAS 13.13, a lease is
classified as a finance lease if it transfers substantially all the risks and rewards incidental to
ownership. On the other hand, a lease is classified as an operating lease if it does not transfer
substantially all the risks and rewards incidental to ownership.
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3.2.3 CHARACTERISTICS OF A FINANCE LEASE
Whether a lease is a finance lease or an operating lease depends on the substance of the
transaction rather than the form of the contract. The following are examples of situations that
individually or in combination that normally lead to a lease being classified as a finance
lease:
(a)
The lease transfers ownership of the asset to the lessee by the end of the lease term;
(b)
The lessee has the option to purchase the asset at a price that is expected to be
sufficiently lower than the fair value at the date the option becomes exercisable for it
to be reasonably certain, at the inception of the lease, that the option will be exercised;
(c)
The lease term is for the major part of the economic life of the asset, even if title is not
transferred;
(d)
At the inception of the lease, the present value of the minimum lease payments
amounts to at least substantially all of the fair value of the leased asset;
(e)
The leased assets are of such a specialized nature that only the lessee can use them
without major modifications;
(f)
The leased assets cannot easily be replaced by another asset.
(g)
If the lessee can cancel the lease, the lessor’s losses associated with the cancellation
are borne by the lessee;
(h)
Gains or losses from the fluctuation in the fair value of the residual accrue to the
lessee (for example in the form of a rent rebate equaling most of the sales proceeds at
the end of the lease); and
(i)
The lessee has the ability to continue the lease for a secondary period at a rent that is
substantially lower than market rent.
3.2.4 LEASES AND OTHER CONTRACTS
According to IPSAS 13.25, a contract may consist solely of an agreement to lease an asset.
However, a lease may also be one element in a broader set of agreements with private sector
entities to construct, own, operate, and/or transfer assets. Public sector entities often enter
into such agreements, particularly in relation to long-lived physical assets and infrastructure
assets. Other agreements may involve a public sector entity leasing infrastructure from the
private sector. The entity determines whether the arrangement is a service concession
arrangement, as defined in IPSAS 32, Service Concession Arrangements: Grantor.
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3.2.5 LEASES IN THE FINANCIAL STATEMENTS OF LESSEES
Finance Leases
IPSAS 13.40prescribes that Lessees shall disclose the following for finance leases:
(a)
For each class of asset, the net carrying amount at the reporting date;
(b)
A reconciliation between the total of future minimum lease payments at the reporting
date, and their present value;
(c)
In addition, an entity shall disclose the total of future minimum lease payments at the
reporting date, and their present value, for each of the following periods:
(i)
Not later than one year;
(ii)
Later than one year and not later than five years; and
(iii)
Later than five years;
(d)
Contingent rents recognized as an expense in the period;
(e)
The total of future minimum sublease payments expected to be received under noncancellable subleases at the reporting date; and
(f)
A general description of the lessee’s material leasing arrangements including, but not
limited to, the following:
(i)
The basis on which contingent rent payable is determined;
(ii)
The existence and terms of renewal or purchase options and escalation
clauses; and
(iii)
Restrictions imposed by lease arrangements, such as those concerning return
of surplus, return of capital contributions, dividends or similar distributions,
additional debt, and further
leasing.
Operating leases
Under IPSAS13.42, lease payments under an operating lease shall be recognized as an
expense on a straight-line basis over the lease term, unless another systematic basis is
representative of the time pattern of the user’s benefit.
Under IPSAS 13.44, lessees shall disclose the following for operating leases:
(a)
The total of future minimum lease payments under non-cancellable operating leases
for each of the following periods:
(b)
(i)
Not later than one year;
(ii)
Later than one year and not later than five years; and
(iii)
Later than five years;
The total of future minimum sublease payments expected to be received under noncancelable subleases at the reporting date;
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(c)
Lease and sublease payments recognized as an expense in the period, with separate
amounts for minimum lease payments, contingent rents, and sublease payments; and
(d)
A general description of the lessee’s significant leasing arrangements including, but
not limited to, the following:
(i)
The basis on which contingent rent payments are determined;
(ii)
The existence and terms of renewal or purchase options and escalation
clauses; and
(iii)
Restrictions imposed by lease arrangements, such as those concerning return
of surplus, return of capital contributions, dividends or similar distributions,
additional debt, and further leasing.
3.2.6 LEASES IN THE FINANCIAL STATEMENTS OF LESSORS
Finance Leases
Under IPSAS 13.48, Lessors shall recognize lease payments receivable under a finance lease
as assets in their statements of financial position. They shall present such assets as a
receivable at an amount equal to the net investment in the lease. Paragraph 51 added that the
recognition of finance revenue shall be based on a pattern reflecting a constant periodic rate
of return on the lessor’s net investment in the finance lease.
Under IPSAS 13.60, Lessors are required to disclose the following for finance leases:
(a)
A reconciliation between the total gross investment in the lease at the reporting date,
and the present value of minimum lease payments receivable at the reporting date. In
addition, an entity shall disclose the gross investment in the lease and the present
value of minimum lease payments receivable at the reporting date, for each of the
following periods:
(i)
Not later than one year;
(ii)
Later than one year and not later than five years; and
(iii)
Later than five years;
(b)
Unearned finance revenue;
(c)
The unguaranteed residual values accruing to the benefit of the lessor;
(d)
The accumulated allowance for uncollectible minimum lease payments receivable;
(e)
Contingent rents recognized in the statement of financial performance; and
(f)
A general description of the lessor’s material leasing arrangements.
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Operating Leases
Under IPSAS13.62. Lessors shall present assets subject to operating leases in their statements
of financial position according to the nature of the asset. Lease revenue from operating leases
is recognized as revenue on a straight-line basis over the lease term, unless another
systematic basis is more representative of the time pattern in which benefits derived from the
leased asset is diminished.
Initial direct costs incurred by lessors in negotiating and arranging an operating lease shall be
added to the carrying amount of the leased asset, and recognized as an expense over the lease
term on the same basis as the lease revenue (para.65). The depreciation policy for depreciable
leased assets shall be consistent with the lessor’s normal depreciation policy for similar
assets, and depreciation shall be calculated in accordance with IPSAS 17 or IPSAS 31.
Paragraph 69 prescribes that Lessors should disclose the following for operating leases:
(a)
The future minimum lease payments under non-cancellable operating leases in the
aggregate and for each of the following periods:
(b)
(i)
Not later than one year;
(ii)
Later than one year and not later than five years; and
(iii)
Later than five years;
Total contingent rents recognized in the statement of financial performance in the
period; and
(c)
A general description of the lessor’s leasing arrangements.
3.2.7 Sales and Leaseback Transactions
The Standard provides that if a sale and leaseback transactions results in finance lease, any
excess of sales proceeds over the carrying amount shall not be immediately recognized as
revenue by a seller-lessee. Instead, it shall be deferred and amortised over the lease term. If a
sale and leaseback transaction result in a finance lease and it is clear that the transaction is
established at fair value, any gain or loss shall be recognized immediately except that, if the
loss is compensated by future lease payments at below market price, then it shall be deferred
and amortised in proportion to the lease payments over the period for which the asset is
expected to be used.
For operating leases, if the fair value at the time of sale and lease back transactions is less
than the carrying amount of the asset, a loss equal to the amount of the difference between the
carrying amount and fair value shall be recognised immediately.
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Self-Assessment Exercise
1
What the characteristics of a finance lease?.
3.2.8 COMPARISON WITH IAS 17
According to IPSAB (2014),, IPSAS 13, Leases is drawn primarily from IAS 17, Leases and
includes amendments made to IAS 17 as part of the Improvements to IFRSs issued in
April2009. The main differences between IPSAS 13 and IAS 17 are as follows:
1.
Commentary additional to that in IAS 17 has been included in IPSAS 13 to clarify the
applicability of the standards to accounting by public sector entities.
2.
IPSAS 13 uses different terminology, in certain instances, from IAS 17. The most
significant example is the use of the term “statement of financial performance” in
IPSAS 13. The equivalent term in IAS 17 is “income statement.”
3.
IPSAS 13 does not use the term “income,” which in IAS 17 has a broader meaning
than the term “revenue.”
4.
IAS 17 includes a definition of “fair value” in its set of definitions of technical terms.
IPSAS 13 does not include this definition, as it is included in the Glossary of Defined
Terms, published separately (paragraph 7).
5
IPSAS 13 has additional implementation guidance that illustrates the classification of
a lease, the treatment of a finance lease by a lessee, the treatment of a finance lease by
a lessor, and the calculation of the interest rate implicit in a finance lease.
3.3
IPSAS 14—EVENTS AFTER THE REPORTING DATE
The standard prescribes generally the treatment of events after the reporting date.
Specifically, it prescribes:
(a)
When an entity should adjust its financial statements for events after the reporting
date; and
(b)
The disclosures that an entity should give about the date when the financial statements
were authorized for issue, and about events after the reporting date.
The Standard also requires that an entity should not prepare its financial statements on a
going concern basis if events after the reporting date indicate that the going concern
assumption is not appropriate.
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3.3.1 EVENTS AFTER THE REPORTING DATE
Events after the reporting date are those events, both favourable and unfavourable, that occur
between the reporting date and the date when the financial statements are authorized for
issue. Two types of events can be identified:
(a)
Those that provide evidence of conditions that existed at the reporting date (adjusting
events after the reporting date); and
(b)
Those are indicative of conditions that arose after the reporting date (non-adjusting
events after the reporting date).
3.3.2 ADJUSTING EVENTS AFTER THE REPORTING DATE
Under IPSAS 14.10, an entity shall adjust the amounts recognized in its financial statements
to reflect adjusting events after the reporting date. Paragraph 11 states that the following are
examples of adjusting events after the reporting date that require an entity to adjust the
amounts recognized in its financial statements, or to recognize items that were not previously
recognized:
(a)
The settlement after the reporting date of a court case that confirms that the entity had
a present obligation at the reporting date.
(b)
The receipt of information after the reporting date indicating that an asset was
impaired at the reporting date, or that the amount of a previously recognized
impairment loss for that asset needs to be adjusted. For example:
(i)
The bankruptcy of a debtor that occurs after the reporting date usually
confirms that a loss already existed at the reporting date on a receivable
account, and that the entity needs to adjust the carrying amount of the
receivable account; and
(ii)
The sale of inventories after the reporting date may give evidence about their
net realizable value at the reporting date;
(c)
The determination after the reporting date of the cost of assets purchased, or the
proceeds from assets sold, before the reporting date;
(d)
The determination after the reporting date of the amount of revenue collected during
the reporting period to be shared with another government under a revenue-sharing
agreement in place during the reporting period;
(e)
The determination after the reporting date of performance bonus payments to be made
to staff if the entity had a present legal or constructive obligation at the reporting date
to make such payments as a result of events before that date; and
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(f)
The discovery of fraud or errors that show that the financial statements were incorrect.
3.3.3 NON-ADJUSTING EVENTS AFTER THE REPORTING DATE
Under IPSAS 14.13, the following are examples of non-adjusting events after the reporting
date:
(a)
Where an entity has adopted a policy of regularly revaluing property to fair value, a
decline in the fair value of property between the reporting date and the date when the
financial statements are authorized for issue.
(b)
Where an entity charged with operating particular community service programs
decides after the reporting date, but before the financial statements are authorized, to
provide/distribute additional benefits directly or indirectly to participants in those
programs
3.3.4 DIVIDENDS OR SIMILAR DISTRIBUTIONS
If an entity declares dividends or similar distributions after the reporting date, the entity shall
not recognize those distributions as a liability at the reporting date( para.14).
3.3.5 DISCLOSURE OF NON-ADJUSTING EVENTS AFTER THE REPORTING
DATE
If non-adjusting events after the reporting date are material, non-disclosure could influence
the economic decisions of users taken on the basis of the financial statements. Accordingly,
an entity shall disclose the following for each material category of non-adjusting event after
the reporting date:
(a)
The nature of the event; and
(b)
An estimate of its financial effect, or a statement that such an estimate cannot be
made.
3.3.6 NON-ADJUSTING EVENT REQUIRING DISCLOSURE
The following are examples of non-adjusting events after the reporting date that would
generally result in disclosure:
(a)
An unusually large decline in the value of property carried at fair value, where that
decline is unrelated to the condition of the property at reporting date, but is due to
circumstances that have arisen since the reporting date;
(b)
The entity decides after the reporting date, to provide/distribute substantial additional
benefits in the future directly or indirectly to participants in community service
400
programs that it operates, and those additional benefits have a major impact on the
entity;
(c)
An acquisition or disposal of a major controlled entity or the outsourcing of all or
substantially all of the activities currently undertaken by an entity after the reporting
date;
(d)
Announcing a plan to discontinue an operation or major program, disposing of assets,
or settling liabilities attributable to a discontinued operation or major program, or
entering into binding agreements to sell such assets or settle such liabilities
(guidance on the treatment and disclosure of discontinued operations can be found in
the relevant international or national accounting standard dealing with discontinued
operations);
(e)
Major purchases and disposals of assets;
(f)
The destruction of a major building by a fire after the reporting date;
(g)
Announcing, or commencing the implementation of, a major restructuring (see IPSAS
19);
(h)
The introduction of legislation to forgive loans made to entities or individuals as part
of a program;
(i)
Abnormally large changes after the reporting date in asset prices or foreign exchange
rates;
(j)
In the case of entities that are liable for income tax or income tax equivalents, changes
in tax rates or tax laws enacted or announced after the reporting date that have a
significant effect on current and deferred tax assets and liabilities (guidance on
accounting for income taxes can be found in the relevant international or national
accounting standard dealing with income taxes);
(k)
Entering into significant commitments or contingent liabilities, for example, by
issuing significant guarantees after the reporting date; and
(l)
Commencing major litigation arising solely out of events that occurred after the
reporting date.
3.3.7COMPARISON WITH IAS 10
According to IPSASB 2014), IPSAS 14, Events After the Reporting Date is drawn primarily
from IAS 10(revised 2003), Events after the Balance Sheet Date and includes an amendment
made to IAS 10 as part of the Improvements to IFRSs issued in May 2008. The main
differences between IPSAS 14 and IAS 10 are as follows:
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1.
IPSAS 14 notes that where the going concern assumption is no longer appropriate,
judgment is required in determining the impact of this change on the carrying value of
assets and liabilities recognized in the financial statements (paragraph 22).
2
IPSAS 14 contains additional commentary on determining the date of authorization
for issue (paragraphs 6, 7, and 8).
3.
Commentary additional to that in IAS 10 has been included in IPSAS 14 to clarify the
applicability of the standards to accounting by public sector entities.
4.
IPSAS 14 uses different terminology, in certain instances, from IAS 10. The most
significant examples are the use of the terms “net assets/equity,” and “reporting date”
in IPSAS 14. The equivalent terms in IAS 10 are “equity,” and “balance sheet date.”
5.
IPSAS 14 does not use the term “income,” which in IAS 10 has a broader meaning
than the term “revenue.”
6.
IPSAS 14 contains a definition of “reporting date,” IAS 10 does not contain a
definition of “balance sheet date.”
Self-Assessment Exercise
1. Compare IPSAS 14 with IAS10.
3.4 IPSAS 15 FINANCIAL INSTRUMENTS: DISCLOSURE AND PRESENTATION
According to IPSASB (2014), IPSAS 15 has been superseded by IPSAS 28, Financial
Instruments: Presentation; IPSAS 29, Financial Instruments: Recognition and Measurement;
and IPSAS 30, Financial Instruments: Disclosures. These Standards apply for annual
financial statements covering periods beginning on or after January 1, 2013. As a result,
IPSAS 15 is no longer applicable and has been withdrawn.
3.5
IPSAS 16—INVESTMENT PROPERTY
This Standard prescribes the accounting treatment for investment property and related
disclosure requirements. This Standard applies to accounting for investment property,
including (a) the measurement in a lessee’s financial statements of investment property
interests held under a lease accounted for as a finance lease, and to (b) the measurement in a
lessor’s financial statements of investment property provided to a lessee under an operating
lease. This Standard does not, however, deals with matters covered in IPSAS 13, Leases,
including:
(a)
Classification of leases as finance leases or operating leases;
(b)
Recognition of lease revenue from investment property (see also IPSAS 9, Revenue
from Exchange Transactions);
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(c)
Measurement in a lessee’s financial statements of property interests held under a lease
accounted for as an operating lease;
(d)
Measurement in a lessor’s financial statements of its net investment in a finance lease;
(e)
Accounting for sale and leaseback transactions; and
(f)
Disclosure about finance leases and operating leases.
(g)
Biological assets related to agricultural activity (see IPSAS 27, Agriculture); and
(h)
Mineral rights and mineral reserves such as oil, natural gas, and similar nonregenerative resources.
3.5.1 SIGNIFICANT DEFINITIONS
Carrying amount: This is the amount at which an asset is recognized in the statement of
financial position.
Cost:
This is the amount of cash or cash equivalents paid or the fair value of other consideration
given to acquire an asset at the time of its acquisition or construction.
Investment property is property:
This is land or a building – or part of a building – or both) held to earn rentals or for capital
appreciation, or both, rather than for:
(a)
Use in the production or supply of goods or services, or for administrative purposes;
or
(b)
Sale in the ordinary course of operations.
Owner-occupied property:
This is property held (by the owner or by the lessee under a finance lease) for use in the
production or supply of goods or services, or for administrative purposes.
3.5.2 EXAMPLES OF INVESTMENT PROPERTY:
(a)
Land held for long-term capital appreciation rather than for short-term sale in the
ordinary course of operations. For example, land held by a hospital for capital
appreciation that may be sold at a beneficial time in the future.
(b)
Land held for a currently undetermined future use. (If an entity has not determined
that it will use the land as owner-occupied property, including occupation to provide
services such as those provided by national parks to current and future generations, or
for short-term sale in the ordinary course of operations, the land is regarded as held
for capital appreciation).
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(c)
A building owned by the entity (or held by the entity under a finance lease) and leased
out under one or more operating leases on commercial basis. For example, a
university may own a building that it leases on a commercial basis to external parties.
(d)
A building that is vacant but is held to be leased out under one or more operating
leases on a commercial basis to external parties.
(e)
Property that is being constructed or developed for future use as investment property.
3.5.3 EXAMPLES OF ITEMS THAT ARE NOT INVESTMENT PROPERTY
(a)
Property held for sale in the ordinary course of operations or in the process of
construction or development for such sale (see IPSAS 12, Inventories).
(b)
Property being constructed or developed on behalf of third parties. For example, a
property and service department may enter into construction contracts with entities
external to its government (see IPSAS 11, Construction Contracts).
(c)
Owner-occupied property (see IPSAS 17), including (among other things) property
held for future use as owner-occupied property, property held for future development
and subsequent use as owner occupied property, property occupied by employees
such as housing for military personnel (whether or not the employees pay rent at
market rates) and owner-occupied property awaiting disposal.
(d)
Property that is leased to another entity under a finance lease.
(e)
Property held to provide a social service and which also generates cash inflows. For
example, a housing department may hold a large housing stock used to provide
housing to low income families at below market rental.
(f)
Property held for strategic purposes which would be accounted for in accordance with
IPSAS 17.
3.5.4 RECOGNITION
Under IPSAS 16.20, Investment property is recognized as an asset when, and only when:
(a)
It is probable that the future economic benefits or service potential that are associated
with
(b)
the investment property will flow to the entity; and
The cost or fair value of the investment property can be measured reliably.
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3.5.5 Measurement at Recognition
Under IPSAS 16.26, Investment property is measured initially at its cost (transaction costs
shall be included in this initial measurement).Where an investment property is acquired
through a non-exchange transaction, its cost shall be measured at its fair value as at the date
of acquisition (para.27).
3.5.6 Measurement After Recognised of Investment Property
Measurement of recognized assets is carried out using any of these two applicable methods:
(a)
Fair Value Model Investment property is measured at fair value unless there is clear evidence when the
entity first acquires an item of investment property that the fair value of the asset is
not reliably determined;
(b)
Cost Model
Investment property is measured at fixed cost less any accumulated depreciation and
any accumulated impairment losses.
3.5.7 TRANSFERS
Under IPSAS 16.66, Transfers to or from investment property shall be made when, and only
when, there is a change in use, evidenced by:
(a)
Commencement of owner-occupation, for a transfer from investment property to
owner- occupied property;
(b)
Commencement of development with a view to sale, for a transfer from investment
property to inventories;
(c)
End of owner-occupation, for a transfer from owner-occupied property to investment
property; or
(d)
Commencement of an operating lease (on a commercial basis) to another party, for a
transfer from inventories to investment property.
3.5.8 Fair Value Model
Under the Fair Value, an entity reports the effect of adopting the standard on its effective date
(or earlier) as an adjustment to the opening balance of accumulated surpluses or deficits for
the period in which the IPSAS is first adopted. In addition:
(a)
If the entity has previously disclosed publicly, in the financial statements or
otherwise, the fair value of its investment property in earlier periods (determined on a
basis that satisfies the definition of fair value in IPSAS16.6 and the guidance in
paragraphs IPDSD 16.37 -54) the entity is encouraged, but not required, to:
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i.
Adjust the opening balance of accumulated surpluses or deficits for the earliest
period presented for which such fair value was disclosed publicly; and
ii.
(b)
Restate comparative information for those periods;
If the entity has not previously disclosed publicly the information described in (a), the
entity should not restate comparative information and should disclose such fact.
3.5.9 DISPOSALS
Paragraph 77 of the Standard stipulates that an investment property shall be derecognized
(eliminated from the statement of financial position) on disposal or when the investment
property is permanently withdrawn from use and no future economic benefits or service
potential are expected from its disposal.
3.5.10 DISCLOSURE : Fair value and cost model
IPSAS 16.86 requires the following disclosures in addition to the disclosures to those in
IPSAS 13:
(a)
Whether it applies the fair value or the cost model;
(b)
If it applies the fair value model, whether, and in what circumstances, property
interests held under operating leases are classified and accounted for as investment
property;
(c)
When classification is difficult (see paragraph 18), the criteria it uses to distinguish
investment property from owner-occupied property and from property held for sale in
the ordinary course of operations;
(d)
The methods and significant assumptions applied in determining the fair value of
investment
property, including a statement whether the determination of fair value
was supported by market evidence, or was more heavily based on other factors (which
the entity shall disclose) because of the nature of the property and lack of comparable
market data;
(e)
The extent to which the fair value of investment property (as measured or disclosed in
the financial statements) is based on a valuation by an independent valuer who holds a
recognized and relevant professional qualification and has recent experience in the
location and category of the investment property being valued. If there has been no
such valuation, that fact shall be disclosed;
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3.5.11 DISCLOSURE : FAIR VALUE MODEL
IPSAS 16.87 requires that in addition to the disclosures required by paragraph 86, an entity
that applies the fair value model in paragraphs 42–64 shall disclose a reconciliation between
the carrying amounts of investment property at the beginning and end of the period, showing
the following:
(a)
Additions, disclosing separately those additions resulting from acquisitions and those
resulting from subsequent expenditure recognized in the carrying amount of an asset;
(b)
Additions resulting from acquisitions through entity combinations;
(c)
Disposals;
(d)
Net gains or losses from fair value adjustments;
(e)
The net exchange differences arising on the translation of the financial statements into
a different presentation currency, and on translation of a foreign operation into the
presentation currency of the reporting entity;
(f)
Transfers to and from inventories and owner-occupied property; and
(g)
Other changes.
3.5.12 DISCLOSURE: COST MODEL
Paragraph 90 requires that in addition to the disclosures required by paragraph 86, an entity
that applies the cost model in paragraph 65 shall disclose:
(a)
The depreciation methods used;
(b)
The useful lives or the depreciation rates used;
(c)
The gross carrying amount and the accumulated depreciation (aggregated with
accumulated impairment losses) at the beginning and end of the period;
(d)
The reconciliation of the carrying amount of investment property at the beginning and
end of the period, showing the following:
(i)
Additions, disclosing separately those additions resulting from acquisitions
and those resulting from subsequent expenditure recognized as an asset;
(ii)
Additions resulting from acquisitions through entity combinations;
(iii)
Disposals;
(iv)
Depreciation;
(v)
The amount of impairment losses recognized, and the amount of impairment
losses reversed, during the period in accordance with IPSAS 21 or IPSAS 26,
as appropriate;
407
(vi)
The net exchange differences arising on the translation of the financial
statements into a different presentation currency, and on translation of a
foreign operation into the presentation currency of the reporting entity;
(e)
(vii)
Transfers to and from inventories and owner-occupied property; and
(viii)
Other changes; and
The fair value of investment property. In the exceptional cases described in paragraph
62, when an entity cannot determine the fair value of the investment property reliably,
the entity shall disclose:
(i)
A description of the investment property;
(ii)
An explanation of why fair value cannot be determined reliably; and
(iii)
If possible, the range of estimates within which fair value is highly likely to
lie.
3.5.13 COMPARISON WITH IAS 40
According to IPSASB (2014), IPSAS 16 is drawn primarily from IAS 40 (2003), Investment
Property and includes amendments made to IAS 40 as part of the Improvements to IFRSs
issued in May 2008.
The main differences between IPSAS 16 and IAS 40 are as follows:
1.
IPSAS 16 requires that investment property initially be measured at cost and
specifies that where an asset is acquired for no cost or for a nominal cost, its cost is
its fair value as at the date of acquisition. IAS 40 requires investment property to be
initially measured at cost.
2.
There is additional commentary to make clear that IPSAS 16 does not apply to
property held to deliver a social service that also generates cash inflows. Such
property is accounted for in accordance with IPSAS 17, Property, Plant, and
Equipment.
3.
IPSAS 16 contains transitional provisions for both the first time adoption and
changeover from the previous version of IPSAS 16. IAS 40 only contains transitional
provisions for entities that have already used IFRSs. IFRS 1 deals with first time
adoption of IFRSs. IPSAS 16 includes additional transitional provisions that specify
that when an entity adopts the accrual basis of accounting for the first time and
recognizes investment property that was previously unrecognized,
the
adjustment
should be reported in the opening balance of accumulated surpluses or deficits.
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4
Commentary additional to that in IAS 40 has been included in IPSAS 16 to clarify the
applicability of the standards to accounting by public sector entities.
5
IPSAS 16 uses different terminology, in certain instances, from IAS 40. The most
significant example is the use of the term “statement of financial performance” in
IPSAS 16. The equivalent term in IAS 40 is “income statement.”
6.
IPSAS 16 does not use the term “income,” which in IAS 40 has a broader meaning
than the term “revenue.”
3.6
IPSAS 17—PROPERTY, PLANT, AND EQUIPMENT
The Standard prescribes the accounting treatment for property, plant, and equipment so that
users of financial statements can discern information about an entity’s investment in its
property, plant, and equipment and the changes in such investment. The principal issues in
accounting for property, plant, and equipment are (a) the recognition of the assets, (b) the
determination of their carrying amounts, and (c) the depreciation charges and impairment
losses to be recognized in relation to them.
The Standard applies to all public sector entities except:
(a)
When a different accounting treatment has been adopted in accordance with another
IPSAS;
(b)
In respect of heritage assets. However, the disclosure requirements of paragraphs 88,
89, and 92 apply to those heritage assets that are recognized.
(c)
Government Business Enterprises
(d)
Biological assets related to agricultural activity (see IPSAS 27, Agriculture); or
(e)
Mineral rights and mineral reserves such as oil, natural gas, and similar non
regenerative resources (see the relevant international or national accounting standard
dealing with mineral rights, mineral reserves, and similar non-regenerative resources).
3.6.1 HERITAGE ASSETS
Under paragraph 17.9, the Standard does not require an entity to recognize heritage assets
that would otherwise meet the definition of, and recognition criteria for, property, plant, and
equipment. If an entity does recognize heritage assets, it must apply the disclosure
requirements of this Standard and may, but is not required to, apply the measurement
requirements of this Standard.
Paragraph 10 of the Standard described some assets as heritage assets because of their
cultural, environmental, or historical significance. Examples of heritage assets include
historical buildings and monuments, archaeological sites, conservation areas and nature
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reserves, and works of art. Certain characteristics, including the following, are often
displayed by heritage assets (although these characteristics are not exclusive to such assets):
(a)
Their value in cultural, environmental, educational, and historical terms is unlikely to
be fully reflected in a financial value based purely on a market price;
(b)
Legal and/or statutory obligations may impose prohibitions or severe restrictions on
disposal by sale;
(c)
They are often irreplaceable and their value may increase over time, even if their
physical condition deteriorates; and
(d)
It may be difficult to estimate their useful lives, which in some cases could be several
hundred years.
Public sector entities may have large holdings of heritage assets that have been acquired over
many years and by various means, including purchase, donation, bequest, and sequestration.
These assets are rarely held for their ability to generate cash inflows, and there may be legal
or social obstacles to using them for such purposes. Therefore, entities that recognize heritage
assets are required to disclose in respect of those assets such matters as, for example:
(a)
The measurement basis used;
(b)
The depreciation method used, if any;
(c)
The gross carrying amount;
(d)
The accumulated depreciation at the end of the period, if any; and
(e)
A reconciliation of the carrying amount at the beginning and end of the period
showing certain components thereof.
3.6.2 SIGNIFICANT DEFINITIONS
(a)
Carrying Amount: (for the purpose of this standard) is the amount at which an asset is
recognised after deducting any accumulated depreciation and accumulated
impairment losses.
(b)
Class of Property, Plant and Equipment: means a grouping of assets of similar nature
or function in an entity’s operations that is shown as a single item for the purpose of
disclosure in the financial statements.
(c)
Cost: is the amount of cash or cash equivalents paid and fair value of the other
consideration given to acquire an asset at the time of its acquisition or construction.
(d)
Depreciation: is the systematic allocation of the depreciable amount of an asset over
its useful life.
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(e)
Depreciable Amount: is the cost of an asset, or other amount substituted for cost, less
its residual value.
(f)
Entity Specific Value: is the present value of the cash flows an entity expects to
realise from the continuing use of an asset and from its disposal at the end of its useful
life or expect to incur when setting a liability.
(g)
Exchange Transactions: are transactions in which one entity receives assets or
services, or has liabilities extinguished, and directly gives approximately equal value
(primarily in the form of cash, goods, services, or use of assets) to another entity in
exchange.
(h)
Fair Value: is the amount for which an asset could be exchanged or liability settled,
between knowledgeable, willing parties in an arm’s length transaction.
(i)
An Impairment Loss: of a cash generation asset is the amount by which the carrying
amount of an asset exceeds its recoverable amount.
(j)
An Impairment Loss of a Non-Cash Generating Asset: is the amount by which the
carrying amount of an asset exceeds its recoverable service amount.
(k)
Non-exchange Transactions: are transactions that are not exchange transactions. In
non-exchange transaction, an entity either receives value from another entity without
directly giving approximately equal value in exchange, or gives value to another
entity without directly receiving approximately equal value in exchange.
(l)
Property, Plant and Equipment: are tangible items that:
(i)
Are held for use in the production or supply of goods or services, for rental to
others, or for administrative purposes; and
(ii)
(m)
Are expected to be used during more than one reporting period.
Recoverable Amount: is the higher of a cash-generating asset’s fair value less costs to
sell and its value in use.
(n)
Recoverable Service Amount: is the higher of a non-cash-generating asset’s fair value
less costs to sell and its value in use.
(o)
The Residual Value of an asset is the estimated amount that an entity would currently
obtain from disposal of the asset, after deducting the estimated costs of disposal, if
the asset were already of the age and in the condition expected at the end of its useful
life. Useful Life is: (i) The period over which an asset is expected to be available for
use by an entity; or
(ii) The number of production or similar units expected to be
obtained from the asset by an entity.
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3.6.3 Measurement after Recognition
Paragraph 42 requires an entity to choose either the cost model in paragraph 43 or there
valuation model in paragraph 44 as its accounting policy.
3.6.4 Cost Model
After recognition as an asset, an item of property, plant, and equipment shall is carried at its
cost, less any accumulated depreciation and any accumulated impairment losses.
3.6.5 Revaluation Model
After recognition as an asset, an item of property, plant, and equipment whose fair value can
be measured reliably is carried at a revalued amount, being its fair value at the date of the
revaluation, less any subsequent accumulated depreciation, and subsequent accumulated
impairment losses. Revaluations shall be made with sufficient regularity to ensure that the
carrying amount does not differ materially from that which would be determined using fair
value at the reporting date. The accounting treatment for revaluations is set out in paragraphs
54–56.
3.6.6 Depreciation
Paragraph 59 states that each part of an item of property, plant, and equipment with a cost
that is significant in relation to the total cost of the item shall be depreciated separately.
3.6.7 Disclosure
Paragraph 88 of the Standard requires that the financial statements shall disclose, for each
class of property, plant, and equipment recognized in the financial statements:
(a) The measurement bases used for determining the gross carrying amount;
(b) The depreciation methods used;
(c) The useful lives or the depreciation rates used;
(d) The gross carrying amount and the accumulated depreciation (aggregated with
accumulated impairment losses) at the beginning and end of the period; and
(e) A reconciliation of the carrying amount at the beginning and end of the period showing:
(i)
Additions;
(ii)
Disposals;
(iii)
Acquisitions through entity combinations;
(iv)
Increases or decreases resulting from revaluations under paragraphs 44, 54,
and 55 and from impairment losses (if any) recognized or reversed directly in
net assets/equity in accordance with IPSAS 21 or IPSAS 26, as appropriate;
(v)
Impairment losses recognized in surplus or deficit in accordance with IPSAS
21 or IPSAS 26, as appropriate;
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(vi)
Impairment losses reversed in surplus or deficit in accordance with IPSAS 21
or IPSAS 26, as appropriate;
(vii)
Depreciation;
(viii)
The net exchange differences arising on the translation of the financial
statements from the functional currency into a different presentation currency,
including the translation of a foreign operation into the presentation currency
of the reporting entity; and
(ix)
Other changes.
The financial statements shall also disclose for each class of property, plant, and equipment
recognized in the financial statements:
(a)
The existence and amounts of restrictions on title, and property, plant, and equipment
pledged as securities for liabilities;
(b)
The amount of expenditures recognized in the carrying amount of an item of property,
plant, and equipment in the course of its construction;(c) The amount of contractual
commitments for the acquisition of property, plant, and equipment; and
(d)
If it is not disclosed separately on the face of the statement of financial performance,
the amount of compensation from third parties for items of property, plant, and
equipment that were impaired, lost or given up that is included in surplus or deficit.
If a class of property, plant, and equipment is stated at revalued amounts, the following shall
be disclosed:
(a)
The effective date of the revaluation;
(b)
Whether an independent valuer was involved;
(c)
The methods and significant assumptions applied in estimating the assets’ fair values;
(d)
The extent to which the assets’ fair values were determined directly by reference to
observable prices in an active market or recent market transactions on arm’s length
terms, or were estimated using other valuation techniques;
(e)
The revaluation surplus, indicating the change for the period and any restrictions on
the distribution of the balance to shareholders or other equity holders;
(f)
The sum of all revaluation surpluses for individual items of property, plant, and
equipment within that class; and
(g)
The sum of all revaluation deficits for individual items of property, plant, and
equipment within that class.
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3.6.8 COMPARISON WITH IAS 16
According to IPSASB( 2014), IPSAS 17 is drawn primarily from IAS 16 (2003), Property,
Plant and Equipment and includes amendments made to IAS 16 as part of the Improvements
to IFRSs issued in May 2008. At the time of issuing this Standard, the IPSASB has not
considered the applicability of IFRS 5, Non-current Assets Held for Sale and Discontinued
Operations to public sector entities; therefore, IPSAS 17 does not reflect amendments made
to IAS 16 consequent upon the issue of IFRS 5. The main differences between IPSAS 17 and
IAS 16 (2003) are as follows:
1.
IPSAS 17 does not require or prohibit the recognition of heritage assets.
2.
IAS 16 requires items of property, plant, and equipment to be initially measured at
cost. IPSAS 17 states that where an item is acquired at no cost, or for a nominal cost,
its cost is its fair value as at the date it is acquired. IAS 16 requires, where an
enterprise adopts the valuation model and carries items of property, plant, and
equipment at revalued amounts, the equivalent historical cost amounts to be disclosed.
This requirement is not included in IPSAS 17.
3.
Under IAS 16, revaluation increases and decreases may only be matched on an
individual item basis. Under IPSAS 17, revaluation increases and decreases are offset
on a class of asset basis.
4.
IPSAS 17 contains transitional provisions for both the first time adoption and
changeover from the previous version of IPSAS 17. IAS 16 only contains transitional
provisions for entities that
have already used IFRSs. Specifically, IPSAS 17
contains transitional provisions allowing entities to not recognize property, plant, and
equipment for reporting periods beginning on a date within five years following the
date of first adoption of accrual accounting in accordance with IPSASs. The
transitional provisions also allow entities to recognize property, plant, and equipment
at fair value on first adopting this Standard. IAS 16 does not include these transitional
provisions.
5.
IPSAS 17 contains definitions of “impairment loss of a non-cash-generating asset”
and “recoverable service amount.” IAS 16 does not contain these definitions.
Commentary additional to that in IAS 16 has been included in IPSAS 17 to clarify
the applicability of the standards to accounting by public sector entities.
6.
IPSAS 17 uses different terminology, in certain instances, from IAS 16. The most
significant examples are the use of the terms “statement of financial performance,”
414
and “net
assets/equity” in IPSAS 17. The equivalent terms in IAS 16 are
“income statement” and
7.
“equity.”
IPSAS 17 does not use the term “income,” which in IAS 16 has a broader meaning
than the term “revenue.”
8.
IPSAS 17 contains Implementation Guidance on the frequency of revaluation of
property, plant, and equipment. IAS 16 does not contain similar guidance.
4.0
SUMMARY
The unit discussed the essential provisions of IPSAS 12, 13, 14, 15, 16, and 17. The methods
of computing different types of inventories were discussed. The unit also discussed the
classification of leases and how to account for them in financial statements. The unit further
discussed the reporting of events after the reporting date as well as the presentation of and
disclosure of financial instruments in financial statements. Accounting for investment
property and for property, plant, and equipment were also discussed.
5.0
CONCLUSION
In this unit, you have learnt about IPSAS 12, 13, 14, 15, 16 and 17. You are expected to find
out about the remaining IPSAS by yourself.
6.0
TUTOR MARKED ASSIGNMENT
1
Give examples of costs that are excluded from inventories.
2
Identify the inventories that are included by IPSAS 12 in the public sector
3
List the items that should be disclosed by the lessees for an operating lease
7.0
REFERENCES/ FURTHER READING
ICAN (2014). Public sector accounting and finance, Lagos: ICAN
IPSASB (2016) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume II, New York: IFAC
IPSASB (2014) Handbook of International Public Sector Accounting Pronouncements
2016 Edition Volume I, New York: IFAC
Ogiedu, K.O. (2016) Lecture notes on public sector accounting and finance, Benin City,
Unpublished
Omolehinwa, E.O., & Naiyeju, J.K. (2015) Government accounting in Nigeria: An IPSAS
approach, Lagos: Pumark (Educational Publishers).
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